Comprehensive Conservation PlanPathfinder National Wildlife Refuge

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Comprehensive Conservation PlanPathfinder National Wildlife Refuge
September 2008Prepared by U.S. Fish and Wildlife ServiceArapaho National Wildlife Refuge Complex953 Jackson County Road #32Walden, CO 80480970/723 8202andRegion 6, Mountain–Prairie RegionDivision of Refuge Planning134 Union Boulevard, Suite 300Lakewood, CO 80228303/236 4305
Approved by
Steve Guertin Regional Director, Region 6U.S. Fish and Wildlife ServiceLakewood, CO
Date
Comprehensive Conservation Plan Approval Pathfinder National Wildlife Refuge
Submitted by
Ann Timberman Project LeaderArapaho National Wildlife
Refuge Complex
Walden, CO
Date
Concurred with by
Bud Oliveira Refuge Supervisor U.S. Fish and Wildlife Service, Region 6Lakewood, CO
Date
and
Richard A. Coleman, PhD Assistant Regional Director, Region 6National Wildlife Refuge SystemU.S. Fish and Wildlife ServiceLakewood, CO
Date
Abbreviations
................................................................................
.............................................................................. ix
Summary.....................................................................................................................................................................
xi
1
Introduction ................................................................................................................................................ 1
Purpose and Need for the Plan ..................................................................
.............................................................. 1
The U.S. Fish and Wildlife Service and the Refuge System ..........................................
..................................... 3
National and Regional Mandates .................................................................
............................................................. 4
Refuge Contributions to National and Regional Plans ..............................................
.......................................... 4
Ecosystem Description and Threats ..............................................................
........................................................... 6
The Planning Process ..........................................................................
........................................................................ 6
2
The Refuge ................................................................................................................................................ 11
Establishment, Acquisition, and Management History ............................................
........................................... 11
Special Values of the Refuge ...................................................................
................................................................. 12
Purpose .....................................................................................
................................................................................... 13
Vision .......................................................................................
..................................................................................... 13
Goals ........................................................................................
..................................................................................... 13
Planning Issues ...............................................................................
............................................................................ 15
3
Refuge Resources and Description
...................................................................................................... 17
Physical Environment .........................................................................
...................................................................... 17
Biological Resources ..........................................................................
........................................................................ 21
Cultural Resources ...........................................................................
......................................................................... 27
Special Management Areas ....................................................................
.................................................................. 27
Visitor Services ..............................................................................
............................................................................ 27
Partnerships .................................................................................
............................................................................... 28
Socioeconomic Environment ...................................................................
................................................................. 28
Operations ..................................................................................
................................................................................. 32
4
Management Direction
........................................................................................................................... 33
Management Focus .................................................................................................
................................................... 33
Goals, Objectives, Strategies, and Rationale ......................................................
................................................... 34
Natural Resources Goal ....................................................................
.................................................................. 34
Visitor Services Goal............................................................................................................................................
37
Partnerships Goal ..........................................................................
....................................................................... 38
Cultural Resources Goal ...................................................................
.................................................................. 39
Administrative Goal ............................................................................................................................................ 39
Staffing and Funding ..................................................................................
............................................................... 39
Monitoring and Evaluation ........................................................................
............................................................... 40
Plan Amendment and Revision .................................................................
............................................................... 40
Glossary ....................................................................................................................................................................... 43
Contents vi CCP, Pathfinder National Wildlife Refuge, WY
Appendixes
A. Environmental Compliance ..............................................................
........................................................... 51
B. Key Legislation and Policies .............................................................
........................................................... 53
C. Section 7 Biological Evaluation
.....................................................................................................................57
D. List of Preparers, Consultation, and Coordination
....................................................................................67
E. Public Involvement
........................................................................................................................................69
F. Memorandum of Understanding
...................................................................................................................77
G. Appropriate Refuge Uses Policy
..................................................................................................................81
H. Compatibility Regulations
.............................................................................................................................89
I. Fire Management Program
.........................................................................................................................101
J. List of Occurring Plant Species ...................................................................................................................105
K. List of Occurring and Potentially Occurring Bird Species
.....................................................................109
L. List of Potentially Occurring Amphibian and Reptile Species ...............................................................113
M. List of Potentially Occurring Mammal Species
........................................................................................115
N. Compatibility Determinations .....................................................................................................................117
O. Divestiture
Model ...........................................................................................................................................123
Bibliography
............................................................................................................................................................. 125Figures and Tables
FIGURES
1
Vicinity map for Pathfinder NWR, Wyoming
............................................................................................... 2
2
Pathfinder NWR is located in the Wyoming Basin, physiographic area 86
............................................. 5
3
Platte–Kansas Rivers ecosystem. ................................................................................................................... 7
4
The planning process. ....................................................................................................................................... 8
5
Base map of Pathfinder NWR, Wyoming
.................................................................................................... 14
6
Habitats at Pathfinder NWR, Wyoming ...................................................................................................... 22
7
Infrastructure and public use areas at Pathfinder NWR, Wyoming ....................................................... 29
8
Location of Pathfinder NWR ......................................................................................................................... 30
9
Wyoming and study area population
............................................................................................................ 30
10
Study area age composition
........................................................................................................................... 31
11
Study area employment distribution, 2006 .................................................................................................. 31
12
Proposed boundary of Pathfinder NWR, Wyoming ................................................................................... 35
13
The adaptive management process. .............................................................................................................. 40
TABLES
1
Planning process summary for Pathfinder NWR, Wyoming ...................................................................... 9
2
Bureau of Reclamation irrigation rights for the Sweetwater
River and Horse Creek, Wyoming. ............................................................................................................... 20
3
Documented occurrences of vertebrate species of concern within
Pathfinder NWR, Wyoming. .......................................................................................................................... 26
4
Current staff for the Arapaho NWR Complex, Colorado
......................................................................... 32
5
Step-down management plans for Pathfinder NWR, Wyoming
.............................................................. 41Abbreviations
Administration Act
National Wildlife Refuge System Administration Act of 1966
BLM
Bureau of Land Management
BSFW
Bureau of Sport Fisheries and Wildlife
CCC
Civilian Conservation Corps
CCP
comprehensive conservation plan
CFR
Code of Federal Regulations
cfs
cubic feet per second
CRP
conservation reserve program
EA
environmental assessment
EO
executive order
FMP
fire management plan
FONSI
finding of no significant impact
FTE
full-time equivalent
GS
General Schedule (employment)
GIS
Geographic Information System
Improvement Act
National Wildlife Refuge System Improvement Act of 1997
NEPA
National Environmental Policy Act
NGO
nongovernmental organization
NOI
notice of intent
NWR
national wildlife refuge
NWRS
National Wildlife Refuge System
Reclamation
Bureau of Reclamation
Refuge System
National Wildlife Refuge System
Region 6
Mountain–Prairie Region of the U.S. Fish and Wildlife Service
RONS
Refuge Operations Needs System
SAMMS
Service Asset Maintenance Management System
Service
U.S. Fish and Wildlife Service
SUP
special use permit
SWG
State Wildlife Grant
TNC
The Nature Conservancy
USFWS
U.S. Fish and Wildlife Service
USGS
U.S. Geological Survey
WG
Wage Grade (employment)
WGFD
Wyoming Game and Fish Department
WUI
wildland–urban interfaceSummary
Photograph caption: Photograph caption: Photograph caption:
Photograph credit:
The U.S. Fish and Wildlife Service has developed this comprehensive conservation plan as the foundation for the management and use of the Pathfinder National Wildlife Refuge located in Carbon and Natrona counties, Wyoming. This plan, approved in 2008, will guide the management of the refuge for the next 15 years.
Assessing the refuge’s ability to provide quality wildlife habitat for migratory bird species and actively managing the refuge to achieve this end, along with identifying and providing appropriate public uses on the refuge, were key factors driving the development of this plan.
The National Wildlife Refuge System Improvement Act of 1997 requires the Service to develop a comprehensive conservation plan by 2012 for each national wildlife refuge in the National Wildlife Refuge System.
This brief summary describes the refuge, comprehensive conservation plan, and planning process.
ThE REFUGE
Located in central Wyoming in a high plains basin near the headwaters of the “Platte–Kansas Rivers” ecosystem, the Pathfinder National Wildlife Refuge lies approximately 47 miles southwest of the city of Casper.
Pathfinder Dam construction was completed in 1909, creating the first reservoir on the North Platte River. At the same time, the Pathfinder Wildlife Refuge (later renamed “Pathfinder National Wildlife Refuge”) was established as an overlay refuge on Bureau of Reclamation lands on the reservoir. This large body of water was very attractive to waterbirds, and where the refuge once offered a unique environment in this semiarid region of Wyoming, the reservoir on which it is situated is now part of a larger system of reservoirs including Alcova to the north and Seminoe to the south.
Major habitat types of the Pathfinder National Wildlife Refuge include open water wetlands, uplands consisting of shrub and grasslands, and alkali flats.
ThE PLANNING PROCESS
Through the environmental analysis process, the Service has selected as the preferred alternative (final comprehensive conservation plan) for the Pathfinder National Wildlife Refuge alternative C from the draft comprehensive conservation plan and environmental assessment published in July 2008.
In 2006, a planning team of refuge and other Service staff gathered and began to analyze resource information. The planning process included designing a vision for the refuge, along with identifying goals to reach the vision. After identifying key issues related to achieving the vision, the team developed management alternatives.
The team invited the public to participate in the planning process and public scoping. A mailing list of approximately 148 names was created and included private citizens; local, regional, and state government representatives and legislators; other federal agencies; tribal governments; and nonprofit organizations.
Key issues (habitat, wildlife, water quality, public outreach, public use, and refuge operations) were identified during analysis of concerns raised by refuge staff, along with analysis of public comments collected during scoping. These issues were addressed throughout the planning process and in the final comprehensive conservation plan. xii CCP, Pathfinder National Wildlife Refuge, WY
COMPREhENSIvE CONSERvATION PLAN
This plan includes detailed objectives and strategies
to carry out the vision and goals for the Pathfinder
National Wildlife Refuge.
Vision
Pathfinder Reservoir and surrounding public
lands supply life-cycle needs for a multitude
of wildlife adapted to this semiarid region of
central Wyoming. The wetland complexes,
upland sagebrush habitats, and open waters of
the reservoir provide feeding, breeding, staging,
resting, and nesting areas for migratory birds
and resident wildlife. Management decisions
will be directed toward maintaining or
improving wildlife habitat values. Appropriate
public use opportunities will be identified, and
provided where possible.
GOALS
The following goals will direct work toward achieving
the vision for the Pathfinder National Wildlife
Refuge.
Natural resource Goal
Conserve the ecological diversity of uplands and
wetlands to support healthy populations of native
wildlife, with an emphasis on migratory birds.
Visitor serVices Goal
Provide wildlife-dependent recreational
opportunities to a diverse audience when the
administration of these programs does not adversely
affect habitat management objectives.
PartNershiPs Goal
Work with partners to support healthy populations of
native wildlife and to increase the understanding of
wildlife needs as well as the benefits wildlife offer to
local communities.
C
Identify and evaluate the cultural resources on the
refuge and protect those that are determined to be
significant.
A
Obtain administrative capabilities that will result
in efficient strategies to manage the landscape to
achieve habitat and public management goals.
1 IntroductionPhotograph caption: Photograph credit:
The U.S. Fish and Wildlife Service (Service, USFWS) has developed this comprehensive conservation plan (CCP) to provide a foundation for the management and use of the Pathfinder National Wildlife Refuge (NWR) located in central Wyoming near the city of Casper (figure 1). It is intended to be a working guide for management programs and actions over the next 15 years for Pathfinder NWR.
This CCP was developed in compliance with the National Wildlife Refuge System Improvement Act of 1997 (Improvement Act) and Part 602 (National Wildlife Refuge System Planning) of “The Fish and Wildlife Service Manual.” The actions described within this CCP meet the requirements of the National Environmental Policy Act of 1969 (NEPA). Compliance with the NEPA is being achieved through the involvement of the public and inclusion of an integrated environmental assessment (EA) in the previous draft document (see the environmental compliance documents in appendix A).
The CCP specifies the necessary actions to achieve the vision and purposes of Pathfinder NWR. Wildlife is the first priority in refuge management, and public use (wildlife-dependent recreation) is allowed and encouraged as long as it is compatible with the refuge’s purpose.
The CCP has been prepared by a planning team consisting of representatives from various Service programs (refuge planning, education and visitor services, and ecological services), the Bureau of Reclamation (Reclamation), the Bureau of Land Management (BLM), and the Wyoming Game and Fish Department (WGFD). In addition, the planning team incorporated public input. Public involvement and the planning process are described in “The Planning Process” section of this chapter.
PURPOSE AND NEED FOR ThE PLAN
The purpose of this CCP is to identify the role that the refuge will play in support of the mission of the National Wildlife Refuge System (Refuge System), and to provide long-term guidance for management of refuge programs and activities. The CCP is needed:
to communicate with the public and other RRpartners in efforts to carry out the mission of the Refuge System;
to provide a clear statement of direction for RRmanagement of the refuge;
to provide neighbors, visitors, and government RRofficials with an understanding of the Service’s management actions on and around the refuge;
to ensure that the Service’s management RRactions are consistent with the mandates of the Improvement Act;
to ensure that management of the refuge is RRconsistent with federal, state, and county plans;
to provide a basis for development of RRbudget requests for the refuge’s operation, maintenance, and capital improvement needs.2 CCP, Pathfinder National Wildlife Refuge, WY
Figure title: VFigure title: Chapter 1 — Introduction 3
Sustaining the nation’s fish and wildlife resources
is a task that can be accomplished only through the
combined efforts of governments, businesses, and
private citizens.
ThE U.S. FISh AND WILDLIFE SERvICE
AND ThE REFUGE SYSTEM
The Service is the principal federal agency
responsible for fish, wildlife, and plant conservation.
The Refuge System is one of the Service’s major
programs.
U
The mission of the U.S. Fish and Wildlife
Service is working with others to conserve,
protect, and enhance fish, wildlife, plants, and
their habitats for the continuing benefit of the
American people.
Over a century ago, America’s fish and wildlife
resources were declining at an alarming rate.
Concerned citizens, scientists, and hunting and
angling groups joined together to restore and sustain
America’s national wildlife heritage. This was the
genesis of the U.S. Fish and Wildlife Service.
Today, the Service enforces federal wildlife laws,
manages migratory bird populations, restores
nationally significant fisheries, conserves and
restores vital wildlife habitat, protects and recovers
endangered species, and helps other governments
with conservation efforts. In addition, the Service
administers a federal aid program that distributes
hundreds of millions of dollars to states for fish and
wildlife restoration, boating access, hunter education,
and related programs across America.
NatioNal WildliFe ReFuGe System
In 1903, President Theodore Roosevelt designated
the 5.5-acre Pelican Island in Florida as the nation’s
first wildlife refuge for the protection of brown
pelicans and other native, nesting birds. This small
but significant designation was the beginning of the
Refuge System.
Over one hundred years later, the Refuge System
has become the largest collection of lands in the
world specifically managed for wildlife, encompassing
over 96 million acres within 546 refuges and over
3,000 small areas for waterfowl breeding and nesting.
Today, there is at least one refuge in every state
as well as Puerto Rico, Guam, and the U.S. Virgin
Islands.
In 1997, the Improvement Act established a clear
mission for the Refuge System.
The mission of the National Wildlife Refuge
System is to administer a national network
of lands and waters for the conservation,
management, and where appropriate,
restoration of the fish, wildlife, and plant
resources and their habitats within the United
States for the benefit of present and future
generations of Americans.
The Improvement Act states that each national
wildlife refuge shall be managed
RR to fulfill the mission of the Refuge System;
RR to fulfill the individual purposes of each refuge;
RR to consider the needs of fish and wildlife first;
RR to fulfill the requirement of developing a CCP
for each unit of the Refuge System and fully
involve the public in the preparation of these
plans;
RR to maintain the biological integrity, diversity,
and environmental health of the Refuge
System;
RR to recognize that the six wildlife-dependent
recreation activities (hunting, fishing,
wildlife observation and photography, and
environmental education and interpretation)
are legitimate and priority public uses;
RR to retain the authority of refuge managers to
determine compatible public uses.
In addition to the mission for the Refuge System, the
wildlife and habitat vision for each unit of the Refuge
System stresses the following principles:
RR Wildlife comes first.
RR Ecosystems, biodiversity, and wilderness are
vital concepts.
RR Habitats must be healthy.
RR Growth of the Refuge System must be
strategic.
RR The Refuge System serves as a model for
habitat management with broad participation
from others.
Following passage of the Improvement Act, the
Service immediately began to carry out the direction
of the new legislation, including preparation of
CCPs for all national wildlife refuges and wetland
management districts. Consistent with the
Improvement Act, the Service prepares all CCPs in
conjunction with public involvement. Each refuge
is required to complete its CCP within the 15-year
schedule (by 2012).
4 CCP, Pathfinder National Wildlife Refuge, WY
PeoPle aNd the reFuGe system
The nation’s fish and wildlife heritage contributes to the quality of American lives. Wildlife and wild places provide special opportunities to recreate, relax, and enjoy the natural world.
Whether through bird watching, fishing, hunting, photography, or other wildlife pursuits, wildlife recreation contributes millions of dollars to local economies. In 2006, nearly 35 million people visited the Refuge System, mostly to observe wildlife in their natural habitats (Carver and Caudill 2007). Visitors are most often accommodated through nature trails, auto tours, interpretive programs, and hunting and fishing opportunities. Significant economic benefits are being generated to the local communities that surround refuges. During fiscal year 2006, recreational use on national wildlife refuges generated almost $1.7 billion of sales in regional economies, supported approximately 27,000 private sector jobs, produced about $543 million in employment income, and generated nearly $185.3 million in tax revenue at the local, county, state, and federal levels (Carver and Caudill 2007).
NATIONAL AND REGIONAL MANDATES
Refuge System units are managed to achieve the designated purpose of the refuge (as described in establishing legislation, executive orders, or other establishing documents) and the mission and goals of the Refuge System. Key concepts and guidance of the Refuge System are in the Refuge System Administration Act of 1966 (Administration Act), Title 50 of the Code of Federal Regulations (CFR), “The Fish and Wildlife Service Manual,” and the Improvement Act.
The Improvement Act amends the Administration Act by providing a unifying mission for the Refuge System, a new process for determining compatible public uses on refuges, and a requirement that each refuge be managed under a CCP. The Improvement Act states that wildlife conservation is the priority of Refuge System lands and that the Secretary of the Interior will ensure that the biological integrity, diversity, and environmental health of refuge lands are maintained. Each refuge must be managed to fulfill the Refuge System’s mission and the specific purposes for which it was established. The Improvement Act requires the Service to monitor the status and trends of fish, wildlife, and plants in each refuge.
A detailed description of these and other laws and executive orders that may affect the CCP or the Service’s implementation of the CCP is in appendix B. Service policies on planning and day-to-day management of refuges are in the “Refuge System Manual” and “The Fish and Wildlife Service Manual.”
REFUGE CONTRIBUTIONS TO NATIONAL AND REGIONAL PLANS
Pathfinder NWR contributes to the conservation efforts described here.
FulFilliNG the Promise
A 1999 report, “Fulfilling the Promise: The National Wildlife Refuge System” (U.S. Fish and Wildlife Service [USFWS] 1999), is the culmination of a yearlong process by teams of Service employees to evaluate the Refuge System nationwide. This report was the focus of the first national Refuge System conference in 1998 attended by refuge managers, other Service employees, and representatives from leading conservation organizations.
The report contains 42 recommendations packaged with three vision statements dealing with wildlife and habitat, people, and leadership. This CCP deals with all three of these major topics. The planning team looked to the recommendations in the document for guidance during CCP planning.
PartNers iN FliGht
The Partners in Flight program began in 1990 with the recognition of declining population levels of many migratory bird species. The challenge, according to the program, is managing human population growth while maintaining functional natural ecosystems. To meet this challenge, Partners in Flight worked to establish priorities for conservation efforts and identify land bird species and habitat types. Partners in Flight activity has resulted in 52 bird conservation plans covering the continental United States.
The primary goal of Partners in Flight is to provide for the long-term health of the bird life of North America. The first priority is to prevent the rarest species from going extinct, the second is to prevent uncommon species from descending into threatened status, and the third is to “keep common birds common.”
There are 58 physiographic areas, defined by similar physical geographic features, wholly or partially contained within the contiguous United States and several others wholly or partially in Alaska. Pathfinder NWR falls within physiographic area 86, the Wyoming Basin (figure 2).
The Wyoming Basin is primarily in Wyoming but also extends into northern Colorado, southern Montana, and very small parts of northeast Utah and southeast Idaho. The area consists of broad intermountain basins interrupted by isolated hills and low mountains that merge to the south into a dissected plateau. The Wyoming Basin is primarily shrub–steppe habitat, dominated by sagebrush and Chapter 1 — Introduction 5
shadscale, interspersed with areas of short-grass prairie. Higher elevations are in mountain shrub vegetation, with coniferous forest atop the highest areas. Priority bird populations and habitats of the Wyoming Basin include:Shrub–Steppe Ferruginous hawk Prairie falcon Greater sage-grouse Cassin’s kingbird Sage thrasher Brewer’s sparrow Sage sparrowSagebrush Grasslands Swainson’s hawk Mountain plover McCowan’s longspurMontane Shrub Lewis’s woodpecker Virginia’s warblerWetlands American white pelican Wilson’s phalarope
A large percentage of the Wyoming Basin is in public ownership, with the BLM owning much of the lower elevation shrub–steppe and grassland and the U.S. Forest Service owning a great deal of the higher-elevation wooded land. A checkerboard pattern of land ownership is a subtle problem that affects the consistency of land management over large areas. The primary land use in the Wyoming Basin has been for many years and continues to be grazing, although conversion to agriculture is also an issue. The effects of overgrazing and nonnative plant invasion should be mitigated to improve conditions for breeding birds. Maintenance of springs and riparian habitat may be crucial, particularly to sage-grouse. Fencing or changing grazing systems may be effective in maintaining water flow. Oil and gas extraction and hard rock mining are relatively recent factors that may negatively affect the greater landscape needs of the sage-grouse (Nicholoff 2003).
Figure title:
R
ecoVerylaNsForederallyistedthreateNed or eNdaNGered sPecies
P F L
The Service conducted a biological evaluation of the actions in this CCP per section 7 of the Endangered Species Act (see appendix C). Where federally listed threatened or endangered species occur at Pathfinder NWR, management goals and strategies in their 6 CCP, Pathfinder National Wildlife Refuge, WY
respective recovery plans will be followed. The list of threatened or endangered species that occur at the refuge will change as species are listed or delisted, or as listed species are discovered on refuge lands. Currently, no federally listed threatened or endangered species occur at the refuge.
SSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSS
Over the past several decades, documented declines of wildlife populations have occurred nationwide. Congress created the State Wildlife Grant (SWG) program in 2001. This program provides states and territories with federal dollars to support conservation aimed at preventing wildlife from becoming endangered and in need of protection under the Endangered Species Act. The SWG program represents an ambitious endeavor to take a proactive role in keeping species from becoming threatened or endangered in the future.
According to the SWG program, each state or territory and the District of Columbia must have completed a comprehensive wildlife conservation strategy (CWCS) by October 1, 2005, to receive future funding.
These strategies will help define an integrated approach to the stewardship of all wildlife species, with additional emphasis on species of concern and habitats at risk. The goal is to shift focus from single-species management and highly specialized individual efforts to a geographically based, landscape-oriented, fish and wildlife conservation effort. The Service approves CWCSs and administers SWG program funding.
The CWCS for the state of Wyoming was reviewed and information therein was used during the development of the CCP. Implementation of CCP habitat goals and objectives will support the goals and objectives of the CWCS.
ECOSYSTEM DESCRIPTION AND ThREATS
Pathfinder NWR is located within the Platte–Kansas Rivers ecosystem, which includes almost all of Nebraska, southeast Wyoming, northeast Colorado, and northern Kansas (figure 3). The ecosystem is home to the Nebraska Sandhills, the largest sand dune complex in the western hemisphere. This area and many others provide vital habitat for numerous threatened and endangered wildlife and plant species.
The ecosystem spans snow-capped, barren mountain peaks in Colorado to lowland riparian cottonwood forests along the Missouri River in eastern Nebraska and Kansas. The mountainous regions are predominately a mixture of coniferous forests comprised of Douglas-fir, ponderosa pine, lodgepole pine, Engelmann spruce, and subalpine fir. Pinyon pine, juniper woodlands, and aspen communities are also common throughout. At high elevation, alpine meadows and lakes, willow shrublands, and barren, rocky areas are frequently found. Forests generally transition into shrub communities dominated by sagebrush with short grasses and forbs in eastern Wyoming and western Nebraska. Farther to the east, trees give way to short-grass prairie dominated by buffalo grass, blue grama, hairy grama, and western wheatgrass. The short-grass prairie turns into mixed-grass prairie in central Nebraska and Kansas, due primarily to greater annual rainfall.
Threats to the Platte–Kansas Rivers ecosystem that require attention include overgrazing of land, invasive plants, population growth and housing development, and groundwater and surface-water depletion. To overcome these threats, the priorities for the ecosystem will be to ensure that natural, healthy ecological processes dominate and that economic development complements environmental protection.
ThE PLANNING PROCESS
This CCP for Pathfinder NWR is intended to comply with the Improvement Act and the NEPA as well as the implementing regulations of the acts. The Service issued its Refuge System planning policy in 2000, which established requirements and guidance for refuge plans—including CCPs and step-down management plans—to ensure that planning efforts comply with the Improvement Act. The planning policy identifies several steps of the CCP and EA process (also see figure 4):
Form a planning team and conduct preplanning.RR
Initiate public involvement and scoping.RR
Draft the vision statement and goals.RR
Develop and analyze alternatives, including the RRproposed action.
Prepare the draft CCP and EA.RR
Prepare and adopt the final CCP and EA RRand issue a “finding of no significant impact” (FONSI) or determine if an environmental impact statement is needed.
Implement the CCP; monitor and evaluate.RR
Review the CCP every 5 years and revise it RRevery 15 years.
The Service began the preplanning process for Pathfinder NWR in January 2006. The planning team consisted of representatives from various Service programs (refuge planning, education and visitor services, and ecological services), the Bureau of Reclamation, the Bureau of Land Management, and the Wyoming Game and Fish Department. Chapter 1 — Introduction 7
Figure title: 8 CCP, Pathfinder National Wildlife Refuge, WY
A list of planning team members and other major contributors to the development of this CCP is in appendix D.
At the start of the CCP process, the refuge was evaluated by the planning team using the Mountain–Prairie Region Divestiture Model (appendix O) to determine whether or not it warranted status as a national wildlife refuge. Designed as a preplanning tool, the model allows planners and refuge managers to determine whether or not a refuge should be considered for divestiture. In the case of Pathfinder NWR, the model indicated that, although the majority of the refuge does not meet the purpose of the refuge and the goals of the Refuge System, approximately 5,000 acres of the refuge provide valuable habitat for migratory birds.
Following this analysis, the Service developed three unique management alternatives based on the issues, concerns, and opportunities expressed during the scoping process. The evaluation of the alternatives was documented in “Draft Comprehensive Conservation Plan and Environmental Assessment—Pathfinder National Wildlife Refuge,” which was published in July 2008. After the public comment period for the draft CCP and EA, the Service finalized the CCP.
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Figure title:
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The Service held two public scoping meetings in May 2006 (see table 1 for details) announced by the local media. During the public meetings, a description of the CCP and NEPA process was provided. Participants were asked to provide suggestions on the scope of issues to be considered in the planning process, and comments were recorded and entered in the planning record. Attendees were encouraged to ask questions and offer comments; each attendee was given a comment form to submit additional thoughts or questions in writing.
Approximately 51 people attended the public meetings. Attendees included local citizens and members of Audubon Wyoming, the Wyoming Outdoor Council, and Biodiversity Conservation Alliance.
Written comments were due July 17, 2006. A total of 70 written comments were received throughout the scoping process. Input obtained from meetings and correspondence including email was considered in development of this CCP.
A mailing list of more than 148 contacts includes private citizens; local, regional, and state government Chapter 1 — Introduction 9
representatives and legislators; other federal
agencies; and interested organizations (appendix E).
In September 2006, the first planning update was
sent to everyone on the mailing list. Information
was provided on the history of the refuge and the
CCP process, along with an invitation to share ideas
regarding refuge management with the planning
team.
Table 1. Planning process summary for Pathfinder NWR, Wyoming.
Date Event Outcome
January–March 2006 Preplanning. CCP overview; established planning team;
identified purpose of the refuge, history, and
establishing authority; developed planning schedule
and CCP mailing list.
April 27, 2006 Kickoff meeting. Toured refuge; conducted internal scoping by
developing issues and qualities list for the refuge;
identified biological and mapping needs; developed a
vision statement for the refuge.
May 8, 2006 News release for public
meeting sent to Wyoming
media contacts.
Notified public of opportunities for involvement in
the CCP process.
May 24, 2006 Public meeting in Casper,
WY.
Opportunity for the public to learn about the CCP
and offer suggestions on the scope of issues to be
considered in the planning process.
May 25, 2006 Public meeting in Laramie,
WY.
Opportunity for the public to learn about the CCP
and offer suggestions on the scope of issues to be
considered in the planning process.
June 16, 2006 NOI (to prepare the CCP)
published in the “Federal
Register.”
Notified the public of the intention to prepare a
CCP and EA for Pathfinder NWR.
August 31, 2006 Goals and alternatives
workshop.
Goals developed; alternatives discussed.
September 2006 Planning update distributed
to CCP mailing list.
Planning update (describing CCP process and
providing opportunity for public suggestions on
the scope of issues to be considered in the planning
process).
January 25, 2007 Environmental consequences
workshop and identification
of the proposed action.
Reviewed the anticipated environmental
consequences; identified alternative C as the
proposed action.
May 2008 Internal review of the draft
CCP and EA.
Received comments on the draft CCP and EA.
July 2008 Planning update (issue 2)
distributed to CCP mailing
list.
Planning update (describing the CCP, vision, and
goals and how to provide comments on the draft
CCP and EA).
July 28, 2008 Release of draft CCP and EA
for public review.
Draft CCP and EA presented to the public;
received comments on the draft CCP and EA.
August 18, 2008 Public meeting in Casper,
WY.
Increased public understanding of the draft CCP
and EA; received public comments about the draft
CCP and EA.
September 18, 2008 CCP approval. Selection of the preferred alternative (C) for the
final CCP.
S
On January 27, 2006, an invitation letter to
participate in the CCP process was sent by the
Service’s region 6 director to the director of
the Wyoming Game and Fish Department. Two
representatives from the WGFD are part of the CCP
planning team. Local WGFD wildlife biologists and
the refuge staff had established excellent ongoing
working relations before starting the CCP process.
10 CCP, Pathfinder National Wildlife Refuge, WY
The Wyoming Game and Fish Department is charged with providing “an adequate and flexible system for the control, management, protection, and regulation of all Wyoming wildlife.” The WGFD maintains 36 Wildlife Habitat Management Areas and 96 Public Access Areas, encompassing 410,000 acres of managed lands for wildlife habitat and public recreation opportunity. These lands contain 121 miles of stream easements and about 21,014 surface acres of lakes and reservoirs for public access (Wyoming Game and Fish Department 2006).
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On October 17, 2006, five Native American tribal governments (Arapaho, Crow, Northern Cheyenne, Oglala Sioux, and Shoshone) were contacted through a letter signed by Service’s region 6 director. With information about the upcoming CCP, the letter invited tribal recipients to serve on the planning team. Although Native American tribal governments did not express interest in participating on the planning team, the tribal governments remain on the CCP mailing list and will continue to receive CCP correspondence.
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Table 1 summarizes the CCP process. Comments collected from scoping meetings and correspondence, including comment forms, were used in the development of a final list of issues that were addressed in the draft CCP and EA.
The Service determined which alternatives could best address these issues. The planning process ensures that issues with the greatest impact on the refuge are resolved or given priority over the life of the final CCP. Identified issues, along with a discussion of effects on resources, are summarized in chapter 2.
In addition, the Service considered suggested changes to current refuge management presented by the public and other groups. 2 The RefugePhotograph caption: Photograph credit:
The Pathfinder Wildlife Refuge (later renamed the “Pathfinder National Wildlife Refuge”) was established by executive order (EO) in 1909. The refuge’s boundaries have been modified several times since its establishment. The present-day refuge comprises four separate units—Sweetwater Arm, Goose Bay, Deweese Creek, and Sage Creek—totaling 16,806 acres (see figure 5).
ESTABLIShMENT, ACqUISITION, AND MANAGEMENT hISTORY
The origins of present-day Pathfinder NWR can be traced to June 17, 1902, when Congress authorized the Bureau of Reclamation to build the Pathfinder Dam and Reservoir in central Wyoming. When dam construction was completed in 1909, the refuge was established on the reservoir as an overlay refuge on Reclamation lands. Wildlife management must be compatible with those uses for which Reclamation acquired the land.
Below is a summary of the legislation that has shaped the refuge over the years:
EO 1032 (February 25, 1909)—established RRPathfinder Wildlife Refuge on the Pathfinder Reservoir site “as a preserve and breeding ground for native birds.”
EO 3725 (August 18, 1922)—revoked that part RRof EO 1032 reserving the Pathfinder Reservoir site for use “as a preserve and breeding ground for native birds.”
EO 4860 (April 19, 1928)—reestablished the RRarea created by EO 1032 “as a preserve and breeding ground for native birds.”
EO 7425 (August 1, 1936)—established the RRpresent refuge and designated it “as a refuge and breeding ground for birds and other wildlife.”
EO 8296 (November 30, 1939)—changed the RRrefuge name from “Pathfinder Wildlife Refuge” to “Pathfinder National Wildlife Refuge.”
Reclamation administers lands within the Pathfinder Reservoir boundary for North Platte Project purposes including flood control, irrigation, and hydroelectric power generation. A memorandum of understanding (MOU) specifies the management responsibilities of the Bureau of Sport Fisheries and Wildlife (BSFW), the Service’s predecessor, while preserving the autonomy of Reclamation to manage Pathfinder Dam and Reservoir (see appendix F).
The North Platte Project is a 111-mile irrigation project stretching along the North Platte River Valley from Guernsey, Wyoming, to Bridgeport, 12 CCP, Pathfinder National Wildlife Refuge, WY
Nebraska (U.S. Department of the Interior, Bureau of Reclamation [USBR]). The project provides full-service irrigation for about 226,000 acres and supplemental irrigation service for a combined area of roughly 109,000 acres. The project includes five storage dams, four diversion dams, a pumping plant, and a power plant, as well as about 2,000 miles of canals, laterals, and drains.
Many mountain streams rising in the Rocky Mountains of Colorado and Wyoming feed the North Platte River. Its waters are stored and used for irrigation and power development for the North Platte Project and related projects. These projects’ storage structures require close operational coordination, which is further complicated by various agreements and laws governing water rights.
Before reaching the Pathfinder Reservoir, the North Platte River waters pass through the Seminoe and Kortes dams, where they are joined by waters from the Sweetwater River. Pathfinder Reservoir holds much of the North Platte Project water, with a storage capacity of 1,016,000 acre-feet. A small amount of water is released during the nonirrigation season to satisfy other water rights, enhance fish and wildlife, and operate power plants downstream, and during the irrigation season, water is released as required.
Pathfinder Dam is located about 3 miles below the North Platte River’s junction with the Sweetwater River.
In the 1960s, the BSFW became increasingly concerned with the decline in waterfowl use of the reservoir. This decline was attributed to various ecological changes resulting from Reclamation activities, particularly water manipulation. Recreational activities were also increasing, and the trend was expected to continue. The BSFW concluded that developing and intensively managing only areas that had existing and potential waterfowl attraction would better benefit wildlife than continuing extensive management of the entire area. To this effect, various memorandums of agreement and understanding were signed with Reclamation and other agencies that oversee lands on the Pathfinder Reservoir:
February 12, 1963—a proposal was made to RRlimit the boundary of Pathfinder NWR to include only the Sweetwater Arm Unit and three small areas (Goose Bay, Deweese Creek, and Sage Creek units) designated for waterfowl production on the main body of the reservoir.
May 20, 1963—the proposal was approved in a RRmemorandum to the BSFW’s regional director of the division of technical services.
May 19, 1964—the proposal was carried out RRthrough partial revocation of EO 7425, which deleted 31,545 acres from the refuge.
May 26, 1964—an MOU was signed between RRReclamation and the BSFW (contract #14-06-700-4605), allowing the latter to manage land and water areas, including grazing, recreation, and related uses, for the conservation of wildlife resources (appendix F).
September 10, 1964—the BSFW submitted an RRapplication to the BLM for the withdrawal of lands from the BLM to add 1,971.97 acres to Pathfinder NWR. The withdrawal of 1,574.84 acres of land was completed November 4, 1964, and serial number Wyoming 0311814 was assigned.
May 7, 1965—Public Land Order 3657 placed RR2,554 acres of public land under the primary responsibility of the BSFW through a realignment of the refuge boundary.
November 16, 1965—an MOA (contract #14-06-RR700-4737) between Reclamation, the BLM, and the BSFW transferred administration of the grazing program to the BLM.
May 19, 1966—an MOU (contract #14-06-RR700-4749) between Reclamation, the Natrona County Commissioners, and the BSFW was established concerning the administration and development of land and facilities at Alcova, Pathfinder, and Grays Reef reservoirs for recreational purposes.
May 19, 1991—an MOU (contract # 1-AG-60-RR01340) between Reclamation and Natrona County replaced the MOU dated May 19, 1966. The area at Pathfinder NWR covered by this MOU is the Bishops Point Recreation Area in the Sweetwater Arm Unit. These recreational lands are currently within the refuge’s boundary and therefore are subject to the Service’s appropriate refuge uses policy (appendix G) and compatibility regulations (appendix H).
SPECIAL vALUES OF ThE REFUGE
Early in the planning process, the planning team and public identified the outstanding qualities of Pathfinder NWR, the characteristics and features that make it special to people, valuable for wildlife, and worthy of refuge status. Identifying these values at the outset helps ensure they will be preserved, protected, and enhanced throughout the planning process. Refuge qualities can range from providing a unique biological habitat for wildlife to offering visitors a quiet place to observe a variety of birds and enjoy nature. The following summarizes the qualities that make portions of the refuge unique and valued.
Wildlife and habitat
Forty species of waterfowl, wading birds, and RRshorebirds use the refuge for migration and Chapter 2 — The Refuge 13
nesting including mountain plover, phalarope,
avocet, redhead duck, and scaup.
RR The Steamboat Lake area of the Sweetwater
Arm Unit provides important feeding and
nesting habitat for waterfowl and other
migratory bird species.
RR The refuge contains a large body of water in
a semiarid environment that provides resting
habitat for migratory birds.
RR Uplands sagebrush habitat on the refuge
supports sage-grouse, antelope, and other sage-obligate
species.
RR The refuge is designated an “Important Bird
Area” by Audubon Wyoming.
RR A state-listed rare plant, slender spiderflower,
is present at the Sweetwater Arm Unit of the
refuge.
RR The potential exists to form partnerships with
other agencies and with private landowners in
the area that are interested in maintaining and
improving the refuge’s natural resources.
RR Currently, there is little pressure for
development near the refuge.
Phalarope Chicks
USFWS
Public Use
RR The refuge provides a variety of public
recreation including the six priority public
uses of the Refuge System (hunting, fishing,
wildlife observation and photography, and
environmental education and interpretation).
RR The Steamboat Lake area of the refuge
provides wildlife observation and interpretation
opportunities.
RR The Oregon Trail and Independence Rock offer
opportunities to showcase the refuge to the
public.
RR The refuge offers visitors open space and
the opportunity to experience solitude in an
aesthetically pleasing environment.
PURPOSE
Every refuge is established for a purpose. This
purpose is the foundation upon which to build all
refuge programs, from biology and public use to
maintenance and facilities. No action that the Service
or public takes may conflict with this refuge purpose.
The refuge purpose is found in the legislative acts or
administrative orders, which are the authorities to
either transfer or acquire a piece of land for a refuge.
Over time an individual refuge may contain lands
that have been acquired under a variety of transfer
and acquisition authorities, giving it more than
one purpose. The goals, objectives, and strategies
identified in the CCP are intended to support
the individual purpose for which the refuge was
established.
As stated in EO 7425, the purpose of Pathfinder
NWR is “as a refuge and breeding ground for birds
and other wildlife.”
Vision
At the beginning of the planning process, the Service
developed a vision for Pathfinder NWR. A vision
describes what will be different in the future as a
result of the CCP and is the essence of what the
Service is trying to accomplish at the refuge. The
vision is a future-oriented statement designed to be
achieved through refuge management by the end
of the 15-year CCP planning horizon. The vision for
Pathfinder NWR is the following:
Pathfinder Reservoir and surrounding public
lands supply life-cycle needs for a multitude
of wildlife adapted to this semiarid region of
central Wyoming. The wetland complexes,
upland sagebrush habitats, and open waters of
the reservoir provide feeding, breeding, staging,
resting, and nesting areas for migratory birds
and resident wildlife. Management decisions
will be directed toward maintaining or
improving wildlife habitat values. Appropriate
public use opportunities will be identified, and
provided where possible.
GOALS
The Service also developed a set of goals for the
refuge based on the Improvement Act, the refuge
purpose, and information developed during project
planning. The goals direct work toward achieving
the vision and purpose of the refuge and outline
approaches for managing refuge resources. The
14 CCP, Pathfinder National Wildlife Refuge, WY
Figure title: Chapter 2 — The Refuge 15
following five goals were identified for Pathfinder NWR.
Natural Resources Goal
Conserve the ecological diversity of uplands and wetlands to support healthy populations of native wildlife, with an emphasis on migratory birds.
V
Provide wildlife-dependent recreational opportunities to a diverse audience when the administration of these programs does not adversely affect habitat management objectives.
Partnerships Goal
Work with partners to support healthy populations of native wildlife and to increase the understanding of wildlife needs as well as the benefits wildlife offer to local communities.
Cultural Resources Goal
Identify and evaluate the cultural resources on the refuge and protect those that are determined to be significant.
Administrative Goal
Obtain administrative capabilities that will result in efficient strategies to manage the landscape to achieve habitat and public management goals.
PLANNING ISSUES
Several key issues were identified following the analysis of comments collected from refuge staff and the public, as well as during a review of the requirements of the Improvement Act and the NEPA. Substantive comments (those that could be addressed within the authority and management capabilities of the Service) were considered during the formulation of the alternatives for future management. These key issues for Pathfinder NWR are summarized below.
Refuge Management
Pathfinder NWR is part of the Arapaho NWR Complex. Refuge staff are headquartered near Walden, Colorado, approximately a four-hour drive from the refuge. The complex’s small staff size (four full-time employees), limited resources, and remote headquarters create management challenges for the refuge, including a lack of day-to-day oversight and minimal opportunities for law enforcement. Degrading infrastructure (specifically, roads, fences, and signs) and litter occur on the refuge due to lack of active management.
Management of Pathfinder Reservoir and refuge lands by multiple agencies creates additional management challenges. The Service currently has memorandums of agreement and understanding with a number of agencies in the Casper region including Reclamation, BLM, WGFD, and Natrona County. Reclamation has a withdrawal on Pathfinder Reservoir lands to support North Platte Project purposes (i.e., flood control, irrigation, and hydroelectric power generation). The Service has a withdrawal on refuge lands for wildlife management purposes. The roles and responsibilities of each agency should be clearly defined, evaluated, and simplified where possible during the CCP process.
Refuge Uses
Refuge uses (grazing and recreation) need to be evaluated to ensure existing and proposed uses are compatible with the purpose of the refuge and mission of the Refuge System. Refuge uses have not been actively evaluated over time due to minimal staff presence. Through the development of this CCP, refuge uses and management activities will be evaluated to ensure the best, most informed decisions are made for proper management of refuge lands. For a use to be deemed compatible, appropriate staff and resources must be available to manage the use.
Water Resources
Water and water availability are vital in semiarid regions. The Service does not own water rights for the refuge, which can result in poor wildlife habitat for trust species.
Water Level Fluctuation
During the past 20 years the average fluctuation of the Pathfinder Reservoir water level was 20 feet per year with a range of 8–40 feet, resulting in a lack of shoreline vegetation and food source for migratory birds and nesting cover for waterfowl. The Bureau of Reclamation is responsible for managing reservoir water levels.
Separated Land Parcels
The refuge consists of four separate units. Separated land parcels are generally more difficult to access and manage than contiguous parcels of land, and generally of less value to wildlife.
Invasive Species
Invasive species are a threat to quality habitat. If not contained early, they can also drain resources. Tamarisk and Canada thistle have been identified on the refuge. An increase in monitoring, management, and control of these and other invasive species is needed.
Research and Science
The Service needs to obtain good baseline data for the refuge. Monitoring programs need to be 16 CCP, Pathfinder National Wildlife Refuge, WY
implemented for species that use the refuge. Audubon Wyoming could be a partner in gathering quality research data on the refuge.
Partnerships
Cooperation with other agencies is needed to address issues of common concern. Opportunities for the public to assist in the protection and management of the refuge should be identified and provided. Local conservation groups could help raise funds for the refuge either directly or by lobbying state and federal representatives.
Staffing
The refuge should be managed by Service staff stationed in Wyoming. This issue was raised frequently in public meetings. The managing staff is currently headquartered at Arapaho NWR in Walden, Colorado, a four-hour drive from the refuge. The remote location of staff prevents active, consistent oversight of the refuge.3 Refuge Resources and DescriptionPhotograph caption: Photograph credit:
Located in central Wyoming in a high plains basin near the headwaters of the Platte–Kansas Rivers ecosystem, Pathfinder NWR lies approximately 47 miles southwest of the city of Casper. Since the refuge was established on the Pathfinder Reservoir in 1909, many other reservoirs have been created, including Alcova to the north and Seminoe to the south, and the refuge no longer offers a unique environment for wildlife in this semiarid region of Wyoming.
This chapter describes the refuge’s setting, as follows:
physical environmentRR
biological resourcesRR
cultural resourcesRR
special management areasRR
visitor servicesRR
partnershipsRR
socioeconomic environmentRR
operationsRR
PhYSICAL ENvIRONMENT
This section describes global warming as well as the climate, soils, water resources, and air quality at the refuge.
Global WarmiNG
The U.S. Department of the Interior issued an order in January 2001 requiring federal agencies under its direction that have land management responsibilities to consider potential climate change effects as part of long-range planning endeavors.
The U.S. Department of Energy’s 1999 report, “Carbon Sequestration Research and Development,” concluded that ecosystem protection is important to carbon sequestration and may reduce or prevent loss of carbon currently stored in the terrestrial biosphere. The report defines carbon sequestration as “the capture and secure storage of carbon that would otherwise be emitted to or remain in the atmosphere.”18 CCP, Pathfinder National Wildlife Refuge, WY
The increase of carbon dioxide (CO2) within the earth’s atmosphere has been linked to the gradual rise in surface temperature commonly referred to as “global warming.” In relation to comprehensive conservation planning for Refuge System units, carbon sequestration constitutes the primary climate-related effect to be considered in planning.
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The annual precipitation as recorded at Pathfinder Dam averages 9.55 inches (Western Regional Climate Center [WRCC]). The average maximum temperature is 58.3ºF, average minimum temperature is 33.4ºF, and extremes range from a summer high of approximately 100ºF to a winter low of approximately −40ºF (WRCC). High winds buffet the area in all seasons, creating ground blizzard conditions in winter and windblown deposition of soils in the spring through fall.
PhysioGraPhy
The Pathfinder Reservoir area consists almost entirely of Miocene age tertiary sediments with outcrops of Precambrian granite. A small area of quaternary alluvial bedrock is found on the west end of the Sweetwater Arm Unit, as well as small deposits of dune sand or loess (loamy deposits) on the Deweese Creek Unit (Larson and Letts 2003). There is little indication of geologic influence from glaciation, and the North Platte River primarily cuts through the granite in the area, creating spectacular canyons but little in the way of flood plains. The Sweetwater River, when reservoir conditions reveal it, seems to have had some history of meandering, and the formation of a flood plain with it. Shifting sand areas (dunes) occur on the western shore of the reservoir and farther to the southwest. The high water mark of the reservoir is 5,850 feet, but lands are regularly exposed below this elevation. The highest point on the refuge is a 6,360-foot rock outcrop on the northwest portion of the Sweetwater Arm Unit.
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Soils in the Sweetwater Arm Unit, located in Natrona County, are comprised of 13 different soil types. Soils found in the eastern half of the unit include Bosler-Alcova, Haverdad-Clarkelen, Delphill-Blazon, Bronsto-Lupinto, and McFadden-Edin-Blackhall. Soils found in the western half of the unit include Zeomont-Ryan Park, Rock River-Ryan Park, Havermom, and Aquic Ustifluvents.
The west and east portions of the Sweetwater Arm Unit share four common soil types including Rawlings-Rock River, Rock Outcrop, Ryan Park, and the Typic Fluvaquents found in the Horse Creek area. The soil range includes saline subirrigated, loamy, shallow loamy, shallow sandy, sandy, and very shallow.
The three most common soil types across the Sweetwater Arm Unit are Ryan Park (in the eastern half) and Typic Fluvaquents and Aquic Ustifluvents (in the western half). Ryan Park is a sandy soil, which creates blowing, sandy conditions depicted in the photograph of the eastern half of the Sweetwater Arm Unit in chapter 4 on page 38. The more common soils in the western half of the unit, including Havermom, are subirrigated soils, which provide better growing conditions for vegetation. The sandy soil types (Rawlins-Rock River and Rock River-Ryan Park) in the western half of the unit are less impacted by reservoir operations. One area of Ryan Park in the western half of the unit abuts the reservoir on the south side of the water body.
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Water resources, hydroloGy, aNd Water riGhts
The refuge is situated on portions of the Bureau of Reclamation’s Pathfinder Reservoir. The reservoir’s dam, located on the North Platte River and backing water flowing in from the Sweetwater River, impounds 1,016,000 acre-feet. The reservoir serves
as part of the North Platte Project, explained in chapter 2.
Water on the refuge’s four units—the main Sweetwater Arm Unit and the satellite Goose Bay, Deweese Creek, and Sage Creek units—flows into the North Platte River. Reclamation retains ownership of all appurtenant state-based Chapter 3 — Refuge Resources and Description 19
water rights. All of the state-based water rights appurtenant to the formerly ranched lands withdrawn for the reservoir are North Platte Project water and part of the reservoir pool, which is maintained on behalf of the downstream water users who entered into repayment contracts for the construction of the project. The Service cannot obtain or purchase state-based water rights for this refuge, due to the lack of enabling legislation.
Four perennial streams on the Sweetwater Arm Unit empty into the reservoir: the Sweetwater River, Dry Creek, Arkansas Creek, and Horse Creek. Upstream of the reservoir pool, all of these streams are relatively free-flowing, with only small on-stream irrigation reservoirs. The largest of the four streams is the Sweetwater River, which has a watershed area of 2,338 square miles upstream of a USGS gauge, located 7 miles upstream of the reservoir. The station has been in operation from 1914 to 1924 and from 1939 to the present. A gauging station (USGS 06639500) was operated on Horse Creek near the dam from 1915 to 1924. The drainage area of Horse Creek at the gauging station was 117 square miles.
Stream discharge generally peaks from snowmelt and precipitation runoff in May and is at its lowest levels in September. Former oxbows of the Sweetwater River receive spring flood flows and serve as seasonal marshes. USGS gauging station records indicate the mean annual production is approximately 91,200 acre-feet for the Sweetwater River and approximately 2,400 acre-feet for Horse Creek.
The Sweetwater Arm Unit contains former ranchland that had several irrigation ditches. The Bothwell ditches divert water from the Sweetwater River, and the Smith ditches divert water from Horse Creek. The lands these ditches irrigated were designated to be inundated by Pathfinder Reservoir. However, over the years, the reservoir’s storage obligations have decreased and some of the lands are not underwater. These state-based water rights were adjudicated and have not been abandoned. Table 2 shows the irrigation rights held by Reclamation for the Sweetwater River and Horse Creek.
The Soda Lakes area contains a series of small, seep-fed alkali ponds. The ponds are shallow, and some dry up in the summer. Several of the ponds are connected by ditches; some have dams that allow water to impound to deeper levels. The structures are in poor condition. All of these lands were withdrawn from the public domain for Reclamation purposes.
A portion of the Goose Bay Unit is underwater when reservoir levels are high. In low-water conditions, it is dry. The unit’s water derives either from reservoir storage or from surface moisture from high water tables resulting from reservoir storage. Approximately 320 acres of the unit were reserved for refuge purposes.
The Deweese Creek Unit has small dams and water-spreader ditches, most of which are dilapidated. Some water from the creek is diverted and spread into small impoundments and moist areas that offer protection for waterfowl broods and afford growth of aquatic plants and grass. Because the soil has hardpan clay under it, the diverted water returns to the creek, which has a fairly constant flow. A gauging station (USGS 06637000) was operated on Deweese Creek from 1917 to 1924. The drainage area above the gauging station was 16.4 square miles. The mean annual production during the period of record was 1,960 acre-feet. Approximately 440 acres of the Deweese Creek Unit were reserved for refuge purposes.
Sage Creek and the North Platte River run through the Sage Creek Unit. Sage Creek has a watershed of approximately 190 square miles, which produces flashy, torrential flows filled with silt and sediment. A gauging station (USGS 06636500) was operated on Sage Creek from 1915 to 1925. The mean production during the period of record was 13,800 acre-feet per year.
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Air quality receives protection under several provisions of the Clean Air Act, including the national ambient air quality standards (NAAQS) and 20 CCP, Pathfinder National Wildlife Refuge, WY
the prevention of significant deterioration program. NAAQS include maximum allowable pollution levels for particulate matter, ozone, sulfur dioxide, nitrogen dioxide, lead, and carbon dioxide.
Based on the Wyoming’s most current data, the state has relatively clean air. In the area of the refuge (Carbon and Natrona counties), the levels of carbon monoxide, nitrogen dioxide, ozone, sulfur dioxide, particulate matter (diameter <2.5 micrometers), particulate matter (diameter <10 micrometers), and lead did not exceed federal standards at any monitoring site in 2006 (U.S. Environmental Protection Agency [EPA] 2007a).
Table 2. Bureau of Reclamation irrigation rights for the Sweetwater River and horse Creek, Wyoming.Permit Territorial Priority No.RightDateNameUseSourceCFS AcreageA.J. Bothwell 9/1/1886Bothwell-Irrigation Sweetwater 6.77 474 Sweetwater RiverNo. 2 DitchState of 9/1/1886Bothwell-Irrigation Sweetwater 2.99 209 Wyoming et al. Sweetwater RiverNo. 2 DitchA.J. Bothwell 6/1/1888Bothwell-Irrigation Sweetwater 9.55669 Sweetwater and RiverNo. 3 Ditchdomestic 397-EA.J. Bothwell 12/22/1898Bothwell-Stock and Sweetwater 2.79 195 Sweetwater domestic RiverNo. 2 Ditch Enlargement397-EState of 12/22/1898Bothwell-Stock and Sweetwater 1.0171 Wyoming Sweetwater domestic RiverNo. 2 Ditch Enlargement397-EA.J. Bothwell 12/22/1898Bothwell-Stock and Sweetwater .79 55 Sweetwater domestic RiverNo. 2 Ditch Enlargement1384A.J. Bothwell 2/6/1897Supplement Irrigation A spring 8.8of Bothwell and or seep No. 2 Ditchdomestic supplements the Sweetwater River Bothwell-Sweetwater No. 2 Ditch rights in case they are not wholeA.J. Bothwell 6/17/1885Smith No. 1 Irrigation Horse Creek 2.8 190 Ditchand domestic A.J. Bothwell 6/17/1885Smith No. 2 Irrigation Horse Creek 1.1480 Ditch
The air quality index (AQI) is an approximate indicator of overall air quality, because it takes into account all of the criteria air pollutants measured within a geographic area. Air quality in Carbon and Natrona counties is considered to be generally good, with no reported days of unhealthy air quality (EPA 2007b).
Prescribed burning is the refuge management activity that has the greatest effect on air quality (find more information in the description of the fire management program in appendix I). The management of smoke is incorporated into planning prescribed burns and, to the extent possible, Chapter 3 — Refuge Resources and Description 21
in suppression of wildfires. Sensitive areas are identified and precautions are taken to safeguard visitors and local residents. Smoke dispersal is a consideration in determining whether a prescribed burn is within prescription. Generally, the fine-grass fuels and small burn size (80–600 acres) generate low volumes of smoke for short durations (4–5 hours). Prescribed burning activities have not yet occurred at Pathfinder NWR.
BIOLOGICAL RESOURCES
This section describes the existing habitat and wildlife at Pathfinder NWR. Appendixes J–M list species that occur or potentially occur on the refuge for plants (appendix J), birds (appendix K), amphibians and reptiles (appendix L), and mammals (appendix M).
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Major habitat types of Pathfinder NWR include open water wetlands, uplands consisting of shrub and grasslands, and alkali flats. The location and distribution of the major habitat types for the refuge is shown in figure 6.
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Water rights throughout Wyoming are tightly regulated by the Wyoming State Engineer’s Office. Central Wyoming is characterized by dry, arid uplands and unpredictable water runoff events. Due to these conditions, Pathfinder Reservoir was constructed to control flooding and to provide for irrigation water to ranches. Over time, the purposes of Pathfinder Reservoir expanded, and it now is used to provide water for hydropower and to deliver water to other downstream reservoirs.
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As explained in chapter 2, Pathfinder Reservoir is part of a system of dams and reservoirs operated by the Bureau of Reclamation in the North Platte River Basin for irrigation, hydroelectric power production, and municipal and industrial water supply. As such, the Service has little to no input into reservoir level management, although a significant portion of the refuge lies below the high water line of the reservoir. As a result, the available management options and long-term benefits of management actions are limited, as reservoir fluctuations can inundate, desiccate, or destroy wildlife habitats.
The spillway elevation for the reservoir is approximately 5,850 feet, at which point the storage capacity is 1,016,507 acre-feet. From 1996 to 2005, the reservoir level saw a high of 5,849.89 feet in 1999 and a low of 5,784.84 feet in 2004. Annual variation between high and low reservoir levels during this time period ranged from 8 feet in 2005 to 26 feet in 2001 and 2002, and averaged nearly 17 feet annually (USBR).
The biological consequences of these variable water levels include a lack of reliable emergent or submergent vegetative growth; shorelines that are primarily sandy, varying from bare sand and rock to partially or fully vegetated with annuals; potentially significant weed issues in low-water years (tamarisk is currently scattered around the reservoir below the high water line); and substrates from the bottom of the reservoir being windblown and deposited on downwind uplands. With the low water levels of the past 5 years, the former floodplain of the Sweetwater River has produced some promising meadow habitat, but a relatively small rise in the reservoir elevation would inundate most of this area.
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Figure title: HFigure title: Chapter 3 — Refuge Resources and Description 23
Use of the reservoir by waterbirds is minimal, likely due to poor water conditions resulting in poor food production, along with disturbance on the water and shorelines from boating, fishing, camping, and all-terrain vehicle (ATV) use.
Fluctuations in reservoir water levels create cutbank and sandy shorelines, resulting in the establishment of little emergent vegetation (i.e., cattails and rushes) for brood cover and feeding areas. The Service’s inability to control reservoir water levels to manage for habitat conditions to support migratory bird species, along with a decrease in migratory bird use of the reservoir, hinder the effectiveness of managing the reservoir area as a national wildlife refuge.
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The refuge’s 1961 annual narrative (BSFW) makes reference to “pit type” ponds that were apparently in place on the Goose Bay Unit. Remnants of these ponds still exist, but only two to three appear to be functional in good water years. The 1962 annual narrative (BSFW) also notes that three dikes and ditches were constructed on Deweese Creek that year, along with one on Sage Creek. The dikes on Deweese Creek were designed to back up water that would not only create a small impoundment but also supply water for use in irrigating adjacent uplands for waterfowl nesting habitat. It appears the dikes were somewhat successful, as this area holds remnants of tame grasses that were probably planted at or near the same time. All of the dikes are currently breached, with the creek running back on its old course through them. The remnants of these ponds hold the only emergents found on the refuge.
The Sage Creek dike was reported to be 270 feet in length and included a 1,300-foot ditch for irrigation (present-day refuge staff have not seen the Sage Creek dike and ditch). Some of the area was planted to a wheatgrass mixture. The dike and ditch were apparently subject to regular damage by high waters during spring flows and thunderstorms, as damage to these structures were reported in 1962, 1963, and 1964. In 1964–65, five dams were constructed on Horse Creek; they appear to be nonfunctional today and to have had little impact on habitat development.
Playas
The playa lakes that make up the Steamboat Lake area of the Sweetwater Arm Unit are influenced by runoff and appear to be supplemented by springs around Steamboat Lake. This area blends in with the upland and alkali flat habitat types, as it consists of small rolling “hills” not more than 10–15 feet higher than the surrounding area with alkali areas between them. These hills and alkali areas vary in size from 100 square feet to many acres. After significant precipitation events, and/or runoff, these alkali areas hold water for a time. Typically, the smaller alkaline areas provide spring habitat but are mainly dry later in the summer months, and the larger alkaline areas to the east of the chain of lakes hold some water most of the year. Steamboat Lake and the next lake east hold water year-round in most years, but an alkali flat generally forms around them in late summer and early fall.
The 1961 annual narrative (BSFW) noted that 1,650 linear feet of diking was constructed in the Soda Lakes area to hold early water and decrease evaporation. This construction can be seen today. Emergent vegetation is limited to the edges of the ponds and includes rushes and sedges. Steamboat Lake and Soda Lakes are used by American avocet, Wilson’s phalarope, and other shorebirds for migration and breeding, as well as several duck species, Canada geese, coot, and eared grebe. The smaller, drier lakes see some use by avocet, apparently when the water is fresher, but they are minimally used otherwise.
The 1966 annual narrative (BSFW) documents the Service’s unsuccessful attempts to acquire water rights for Pathfinder NWR development.
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Uplands consisting of shrub and grasslands are the dominant habitat type in the area. The upland areas adjacent to the reservoir in the area impacted by reservoir operations are characterized by blowing sand and dryland shrub communities. Areas farther west on the Sweetwater Arm Unit (approximately west of Horse Creek) are characterized by more gentle terrain and grassy and wet meadow areas rather than sandy cutbanks. Located in the backwaters of the reservoir, these areas are wet only if the reservoir is full or near full.
The majority of the lands above the high water line of Pathfinder Reservoir—and likely, the area below and approaching the dam—consists of shrub-dominated uplands and rock outcrops. The upland habitats on the refuge slope upward from the reservoir where the North Platte and Sweetwater River channels lie, and in some places are 150 feet above the high water line. Rock outcrops occur on the north, northwest, southwest, and southeast portions of the Sweetwater Arm Unit and in the southeast corner of the Sage Creek Unit. In addition, the western part of the Sage Creek Unit adjacent to the North Platte River contains shear cliffs that rise up from the river 150 feet to an upland bench above. A notable feature on the refuge landscape, these cliffs appear to be made of a different rock than the other Precambrian rock outcrops. These outcrops, though dominated by rock, contain within them areas of sparse grass, forbs, and sage mixes characteristic of the surrounding uplands, as well as scattered limber pine and Rocky Mountain juniper.
The upland vegetation is primarily dominated by sagebrush of various species and heights, and 24 CCP, Pathfinder National Wildlife Refuge, WY
probably age classes as well. The understory of grasses and forbs is sparse in general, but varies from site to site based on soil and range type. The south side of the Sweetwater Arm Unit and the upland areas of the Deweese Creek and Goose Bay units consist primarily of well-dispersed sagebrush of 15–40 percent canopy cover, with a minimal grass-and-forb understory and considerable bare ground. Some draws on the western portion of the Goose Bay Unit and the southern part of the Sweetwater Arm Unit contain small areas of sage 2–4 feet tall and have a canopy cover of nearly 100 percent. Some uplands areas on the north side of the Sweetwater Arm Unit and east of Horse Creek are almost completely covered with pricklypear. The sage component is still present, but the shrubs are further apart and the understory is dominated by cactus.
An area in the northeast corner of the Sweetwater Arm Unit is apparently impacted by sediments blowing from the reservoir bottom when it is exposed. This area was once typical of the other sage-dominated uplands, but most of the plants have died, apparently as the result of being sandblasted or choked off in the sediments, as the soil deposits are several inches deep in spots and have formed drifts. The uplands adjacent to the Steamboat Lake area and the upper end of the Sweetwater River contain more greasewood than sage, and unless they are on a bench, contain very little undergrowth and appear to have very poor soils for vegetative growth. Historic use of the uplands has been for livestock grazing. The geography and soil types in this area are such that, for the most part, no thought seems to have been given to attempting irrigation. Wildlife use of these areas includes pronghorn, mule deer, sage thrasher, horned lark, meadow lark, sage-grouse, rattlesnake, and white-tailed prairie dog.
Wyoming has more sagebrush than any other state. Two cover types, Wyoming big sagebrush (30.8 percent) and mixed grass (20.2 percent), occupied about half of the land area of the Wyoming Gap Analysis (WY-GAP) land cover map, based on the proportional area of land cover (Merrill et al. 1996). WY-GAP is part of the national Gap Analysis Program (GAP), whose goal is to keep common species common by identifying species and plant communities that are inadequately represented in existing conservation lands. Begun in 1991, WY-GAP was officially completed in November 1996. The main goal of WY-GAP was to analyze the current status of biodiversity within Wyoming, focusing on two biodiversity elements: land cover types and terrestrial vertebrate species. Land ownership and management for the state of Wyoming was combined with the data on land cover and species distributions in a geographic overlay using Geographic Information System (GIS) data to determine which biodiversity elements are inadequately protected within the current system of areas managed for conservation.
Wyoming sagebrush communities are as diverse as the landscape, which is covered by 13 different types of sagebrush. Sagebrush-associated vegetation types provide habitat for approximately 87 species of mammals; 297 species of birds; and 63 species of fish, reptiles, and amphibians (Wyoming Interagency Vegetation Committee 2002). These species have been influenced by historic fire intervals and both domestic and wild ungulate grazing.
Associated species occurring in saltbush and desert shrub cover type include greasewood, winterfat, galleta grass, alkali sacaton, Indian ricegrass, bottlebrush, squirreltail, foxtail barley, basin wildrye, and western wheatgrass.
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GraziNG maNaGemeNt history
As noted in chapter 2, in 1965, the Service signed an MOA (contract #14-06-700-4737) with the BLM that transferred grazing management at Pathfinder NWR to the BLM. Since that time, the BLM has administered the grazing in conjunction with BLM allotment grazing. Section 202 of the Federal Land Policy and Management Act of 1976 (FLPMA) requires the development and maintenance of land use plans for public lands. BLM land use plans are designed to provide guidance for future management actions and the development of subsequent, more detailed and limited-scope plans for resources and uses. Land use plans are developed under the multiple-use and sustained-yield mandate of FLPMA.
Land use plans identify lands that are available for livestock grazing and the parameters under which grazing is to occur. BLM issues grazing permits or leases for available grazing lands. Grazing permits and leases specify the portion of the landscape BLM Chapter 3 — Refuge Resources and Description 25
authorizes to the permittee or lessee for grazing (i.e., one or more allotments) and establish the terms and conditions of grazing use. Terms and conditions include, at a minimum, the number and class of livestock, when and where they are allowed to graze, and for how long. Grazing use must conform to any applicable allotment management plans, the terms and conditions of the permit or lease, land use plan decisions, the grazing regulations, and other applicable laws.
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Alkali flats are predominately flat lands and seasonally dried-up wetland basins with strongly saline soils. These areas are associated with or adjacent to playas or intermittent lakes. The alkaline/saline soils appear to severely restrict plant growth, as vegetation is very spotty throughout much of this area. Vegetation includes saltgrass, alkali sacaton, and greasewood. Wildlife use by killdeer and American avocet (likely in association with water nearby) is similarly sparse. The Steamboat Lake area supports alkali wetlands and associated vegetation and wildlife uses.
The soil characteristic of this area is Aquic Ustifluvents (saline), 0–3 percent slopes, and includes the playas mentioned in the open water wetlands section above. When there is no water in the basins of the playas, the soils have an alkaline cover. The alkali flats also include the “hilly” areas of the playas, which occur mainly in the northeast portion of the unit and between the larger playas. The dominant vegetation includes greasewood and saltgrass on the hilly areas, and sedges, rushes, slender spiderflower (a state species of concern), and other salt-tolerant species on the edges of some of the playas. The bottoms of the playa basins do not appear to support vegetation.
M
eadoWs
The refuge does not contain irrigated meadows. Meadow areas exist in a limited capacity and vary with the reservoir level, as much of the meadowland is underwater in high water conditions.
On the Deweese Creek Unit, the Service constructed a series of dikes and ditches in 1962 on the creek with the hope of irrigating the land to improve waterfowl-nesting habitat and create brood-rearing habitat with the ponds. The dikes blocked the creek and were constructed to continue into the adjoining upland area to serve as a ditch bank carrying water to irrigate these lands. When the Service realized, in 1966, that no water rights were available to support such projects, all construction and maintenance efforts were abandoned. Available historical documents do not indicate that these irrigated meadows were seeded, but the remnant stand of tame grasses, as well as documentation of planting efforts in the 1960s on the Sage Creek Unit, indicate seeding could have been attempted on the Deweese Creek Unit as well. The meadow area on this unit is estimated to be less than 100 acres.
The Goose Bay Unit holds some meadow habitat that fluctuates based on water conditions. It is likely nonexistent at full reservoir pool, but may return when the pool is low. The meadows slope down the bay to the east toward the reservoir and are likely influenced by surface and subsurface water flows, presumably spring fed. In extremely low water years (such as 2006), the meadow at Goose Bay is estimated at 100–150 acres. In high water years, the area is likely less than 20 acres.
Another low reservoir phenomenon is the emergence of meadow habitat, which usually occurs after a few successive dry years, along the old floodplain of the Sweetwater River in the Sweetwater Arm Unit. This floodplain is some of the flattest terrain on the refuge when not inundated by the reservoir, and this aspect, combined with water flowing from the Sweetwater River and also likely influenced by Horse Creek, probably raises the water table enough to create fairly lush meadows and emergents over time. The growth of this area was apparent in 2006 and was also noted in the 1966 annual narrative (BSFW). No vegetative surveys have been completed of these areas, but sedges, rushes, and unidentified taller grass species have been observed. Although the aforementioned narrative noted the lush vegetative growth in the meadows of the Sweetwater Arm Unit, it also noted that use of the area by waterfowl, especially nesting birds, appeared to be light.
With the dikes blown out at the Deweese Creek Unit, the pit ponds at the Goose Bay Unit functioning minimally, and no ponds along the Sweetwater River, the brooding areas may be limiting what waterfowl nesting occurs. Pronghorn heavily use the Sweetwater Arm Unit meadows. Snipe, Wilson’s phalarope, meadowlark, and willet have been noted.
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A contaminant assessment completed by the ecological services division of the Service (Ramirez, Dickerson, and Jennings 1995) did not find any major trace element problems at the Sweetwater Arm Unit, with the possible exception of arsenic and chromium in brine shrimp. Although elevated, arsenic and chromium concentrations do not pose a threat to aquatic birds. Major cations and anions (positively and negatively charged ions, respectively), specific conductance, and total alkalinity are typical of shallow alkaline wetlands in the semiarid western United States.
The assessment did not find any evidence of sodium toxicity in ducklings or goslings; however, 26 CCP, Pathfinder National Wildlife Refuge, WY
management recommendations state that waterfowl nesting should not be encouraged at these ponds due to the potential for sodium toxicity. Nesting enhancement measures could be carried out at the southeast ponds closest to the Sweetwater Arm Unit of the reservoir where freshwater is available. Refuge managers should consider water-quality analysis at these ponds before intensive management for waterfowl production. The alkaline ponds provide good nesting habitat for American avocet. If possible, aquatic bird surveys should be conduced during the breeding season to determine productivity and use (Ramirez, Dickerson, and Jennings 1995).
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Federally listed threatened and endangered species for Carbon County include black-footed ferret and blowout beardtongue. Although Canada lynx and yellow-billed cuckoo are potentially found in the county, the refuge does not contain habitat for either species. Currently, no known federally listed threatened or endangered species occur in Natrona County or at the refuge (Wyoming Natural Diversity Database [WYNDD] 2006).
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Table 3 indicates documented occurrences of vertebrate species of concern within Pathfinder NWR (WYNDD 2006). Observations were in the Steamboat Lake area of the Sweetwater Arm Unit.
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Table 3. Documented occurrences of vertebrate species of concern within Pathfinder NWR, Wyoming.
Bird SpeciesMost Recent Observation
American white pelican
2003
Black-crowned night-heron
2002
Brewer’s sparrow
2007
Franklin’s gull
2007
Great blue heron
2007
Greater sandhill crane
2006
Lark bunting
2007
Lesser scaup
2006
McCown’s longspur
2006
Mountain plover
2006
Northern pintail
2007
Redhead
2005
Sage thrasher
2007
Western grebe
2005
White-faced ibis
2005Chapter 3 — Refuge Resources and Description 27
CULTURAL RESOURCES
The Service is responsible for managing archaeological and historical sites found on refuge lands.
Existing agreements have shifted management responsibilities for some refuge programs to other agencies, and coordination between the managing agencies is important to prevent negative effects to cultural resources. The grazing program is currently managed by the BLM, while reservoir water levels are managed by Reclamation. These programs may have effects on cultural resources.
The likelihood of archaeological sites near the reservoir shoreline is high. Reservoir water levels fluctuate an average of 20 feet per year, and shoreline erosion may expose archaeological materials. During low water periods, the collecting of artifacts likely occurs without the Service’s knowledge.
Prehistoric backGrouNd
Although structured searches have been minimal in number, archaeological surveys on and near refuge lands have found numerous indications of substantial use of the area by prehistoric cultures. Ten prehistoric sites have been recorded on the refuge and 142 near refuge lands. They consist of chipped stone, hearths, stone circles, stone raw material procurement areas, rock shelters, and lithic scatters. The presence of the North Platte and Sweetwater rivers in this semiarid land were likely influential on prehistoric human use (Larson and Letts 2003). Arapaho, Cheyenne, Sioux, and Shoshone tribes were probably the most common users of the area.
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Although trappers and traders traversed and used the area in the early nineteenth century, by far the largest push of humans through the region came as a result of the Oregon Trail. The remnants of the trail can clearly be seen in numerous locations on the Steamboat Lake area of the refuge, as well as numerous off-refuge locations nearby. Over 200,000 people are estimated to have traveled the Oregon Trail between 1840 and 1870, many leaving a record of their passing at Independence Rock just 3 miles west of the refuge (Larson and Letts 2003). In addition to travelers to the west coast, the Oregon Trial was used briefly by the Pony Express in the 1860s, and the discovery of gold in 1868 near South Pass City, Wyoming, brought opportunistic travelers.
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European settlement of the refuge area was hindered by a combination of limited natural resources, the absence of major travel corridors (with the exception of the defunct Oregon Trail) and railways, and harsh environmental conditions. Indeed, even today very few people live in the vicinity of the refuge and reservoir. Settlement was almost exclusively dependent upon ranching. Some sheepherding occurred, but cattle ranching was preferred. Because the area is very dry, expanses of land were required to take advantage of what grass was available; ranches were large and included what is now BLM ground for grazing. As in much of the West, water was a critical commodity. At the base of the large rock outcrop on the north side of the Sweetwater Arm Unit is the gravesite of Ella Watson, better known as “Cattle Kate,” and James Averal. They were reported to have been hung in 1889 just off the southwest portion of the Sweetwater Arm Unit over a water dispute.
HHHHHHHHHHHHHHHHHHHHH
One of the biggest signs of development in the region is the reservoir created by Pathfinder Dam. The dam was constructed between 1905 an 1909, and later modified, on a stretch of the North Platte River. Numerous pipelines for oil and natural gas traverse the area, but successful mineral exploration has been minimal. The nearest communities to the refuge are Alcova, located to the east, which currently caters to recreationists on Alcova and Pathfinder reservoirs, and Jeffrey City, a classic mining boom-and-bust town approximately 40 miles west of the refuge.
SPECIAL MANAGEMENT AREAS
There are no special management areas related to the refuge.
WilderNess
Due to human development in the area and current and past land use patterns, the refuge does not appear to meet the criteria for wilderness. As outlined in the Wilderness Act of 1994, a wilderness area:
generally appears to have been affected RRprimarily by the forces of nature, with the human imprint substantially unnoticeable;
offers outstanding opportunities for solitude or RRa primitive and unconfined type of recreation;
has at least 5,000 acres of land or is of sufficient RRsize as to make practicable its preservation and use in an unimpaired condition;
may contain ecological, geological, or other RRfeatures of scientific, educational, scenic, or historical value.
Visitor
Refuge infrastructure (roads) and public use facilities (wildlife viewing area, county park) are shown in figure 7.28 CCP, Pathfinder National Wildlife Refuge, WY
The distance of the refuge from the complex headquarters at Arapaho NWR, combined with little boundary fencing and the fact that part of the reservoir is refuge land and part is not, create a situation that allows for unrestricted public use on the refuge.
A developed campground and boat ramp are located at Bishops Point in the Sweetwater Arm Unit and is administered by the Natrona County Roads, Bridges, and Parks Department. Hunting of ducks, coots, mergansers, deer, and pronghorn is permitted throughout the refuge in accordance with state seasons.
An interpretive overlook located along Highway 220 above Steamboat Lake interprets the refuge and likely receives several visits a day from the spring through the fall. Opportunities specific to wildlife observation and photography are minimal, as there are no formal tour routes, hiking trails, or signs.
Several non-wildlife-dependent uses presently occur or are assumed to occur on the refuge, including off-road vehicle use (as the reservoir level fluctuates vehicles follow the shoreline); dispersed camping; water skiing, jet skiing, and pleasure boating; ATV use; Bishops Point campground and boat ramp use; rock climbing; and arrowhead hunting. Although refuge staff have known about these incompatible refuge uses for years, the lack of human and fiscal resources has made addressing them a low priority.
Refuge staff believe that most public use occurs on the refuge’s largest unit, the Sweetwater Arm, due to its size and location close to a main highway and the city of Casper. The Sage Creek Unit is fairly small and remote. Goose Bay and Deweese Creek are small, extremely remote units surrounded by BLM lands that probably only see occasional use by hunt­ers and jet skiers or boaters in high water conditions.Photograph caption: Photograph caption: Photograph credit:
H
Hunting is allowed per state seasons. Because the refuge boundary is not appropriately posted or fenced, Service law enforcement officers cannot enforce hunting regulations. The number of hunters using the refuge is unknown but is predicted to be low due to the remote access to most of the refuge.
Fishing
Fishing will continue to be allowed on the main reservoir and in stream areas leading to it. Fishing is allowed per state seasons. The Service does not have control over fishing limits or seasonal closures.
Wildlife Observation, Photography, Environmental Education, and Interpretation
Although wildlife viewing and photography probably occur on other areas of the refuge, the only known uses occur at the Steamboat Lake area, which offers the best opportunities for these activities. An interpretive overlook can be found off Highway 220 above Steamboat Lake.
PARTNERShIPS
Refuge staff work with Audubon Wyoming to conduct annual breeding bird surveys. Audubon Wyoming conducts annual waterfowl and shorebird surveys at the Steamboat Lake area.
SOCIOECONOMIC ENvIRONMENT
The local and regional demographics (statistical data about the population) are described below for the communities in the five-county study area pertaining to Pathfinder NWR.
SSSSSSSSSSSSSSSSSSSSSSS
The following section illustrates the current socioeconomic conditions found within the study area, which is comprised of Albany, Carbon, Converse, Fremont, and Natrona counties. Pathfinder NWR is located within Carbon and Natrona counties; however, the remaining three counties included in the study area are located in Chapter 3 — Refuge Resources and Description 29
Figure title: 30 CCP, Pathfinder National Wildlife Refuge, WY
close proximity to the refuge and could be affected by refuge management decisions.
Figure 8 shows the location of Pathfinder NWR in relation to nearby population centers. The refuge is located in central Wyoming near the cities of Casper, Rawlins, and Medicine Bow.
Figure title and source: Figure title and source:
PoPulatioN
The 2006 census shows the population of the study area has slowly increased since 2000, and total population was about 165,300 as of 2005 (U.S. Census Bureau 2006). Over the same period, the population of Wyoming decreased slightly (figure 9). The study
area contained 33 percent of Wyoming’s population in 2005. The city of Casper (2000 census population 49,644) is located within the study area and provides an ample tourist base for the refuge (U.S. Census Bureau 2006).
Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups.Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups.Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups.Graph showing census information broken down into age groups. Graph showing census information broken down into age groups.Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups.Graph showing census information broken down into age groups.Graph showing census information broken down into age groups.Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups.Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups.Graph showing census information broken down into age groups.Graph showing census information broken down into age groups.Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups.Graph showing census information broken down into age groups.Graph showing census information broken down into age groups.Graph showing census information broken down into age groups.Graph showing census information broken down into age groups.Graph showing census information broken down into age groups. Graph showing census information broken down into age groups.Graph showing census information broken down into age groups.Graph showing census information broken down into age groups.Graph showing census information broken down into age groups.Graph showing census information broken down into age groups. Graph showing census information broken down into age groups. Graph showing census information broken down into age groups.Graph showing census information broken down into age groups.Graph showing census information broken down into age groups. Graph showing census informat

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Comprehensive Conservation PlanPathfinder National Wildlife Refuge
September 2008Prepared by U.S. Fish and Wildlife ServiceArapaho National Wildlife Refuge Complex953 Jackson County Road #32Walden, CO 80480970/723 8202andRegion 6, Mountain–Prairie RegionDivision of Refuge Planning134 Union Boulevard, Suite 300Lakewood, CO 80228303/236 4305
Approved by
Steve Guertin Regional Director, Region 6U.S. Fish and Wildlife ServiceLakewood, CO
Date
Comprehensive Conservation Plan Approval Pathfinder National Wildlife Refuge
Submitted by
Ann Timberman Project LeaderArapaho National Wildlife
Refuge Complex
Walden, CO
Date
Concurred with by
Bud Oliveira Refuge Supervisor U.S. Fish and Wildlife Service, Region 6Lakewood, CO
Date
and
Richard A. Coleman, PhD Assistant Regional Director, Region 6National Wildlife Refuge SystemU.S. Fish and Wildlife ServiceLakewood, CO
Date
Abbreviations
................................................................................
.............................................................................. ix
Summary.....................................................................................................................................................................
xi
1
Introduction ................................................................................................................................................ 1
Purpose and Need for the Plan ..................................................................
.............................................................. 1
The U.S. Fish and Wildlife Service and the Refuge System ..........................................
..................................... 3
National and Regional Mandates .................................................................
............................................................. 4
Refuge Contributions to National and Regional Plans ..............................................
.......................................... 4
Ecosystem Description and Threats ..............................................................
........................................................... 6
The Planning Process ..........................................................................
........................................................................ 6
2
The Refuge ................................................................................................................................................ 11
Establishment, Acquisition, and Management History ............................................
........................................... 11
Special Values of the Refuge ...................................................................
................................................................. 12
Purpose .....................................................................................
................................................................................... 13
Vision .......................................................................................
..................................................................................... 13
Goals ........................................................................................
..................................................................................... 13
Planning Issues ...............................................................................
............................................................................ 15
3
Refuge Resources and Description
...................................................................................................... 17
Physical Environment .........................................................................
...................................................................... 17
Biological Resources ..........................................................................
........................................................................ 21
Cultural Resources ...........................................................................
......................................................................... 27
Special Management Areas ....................................................................
.................................................................. 27
Visitor Services ..............................................................................
............................................................................ 27
Partnerships .................................................................................
............................................................................... 28
Socioeconomic Environment ...................................................................
................................................................. 28
Operations ..................................................................................
................................................................................. 32
4
Management Direction
........................................................................................................................... 33
Management Focus .................................................................................................
................................................... 33
Goals, Objectives, Strategies, and Rationale ......................................................
................................................... 34
Natural Resources Goal ....................................................................
.................................................................. 34
Visitor Services Goal............................................................................................................................................
37
Partnerships Goal ..........................................................................
....................................................................... 38
Cultural Resources Goal ...................................................................
.................................................................. 39
Administrative Goal ............................................................................................................................................ 39
Staffing and Funding ..................................................................................
............................................................... 39
Monitoring and Evaluation ........................................................................
............................................................... 40
Plan Amendment and Revision .................................................................
............................................................... 40
Glossary ....................................................................................................................................................................... 43
Contents vi CCP, Pathfinder National Wildlife Refuge, WY
Appendixes
A. Environmental Compliance ..............................................................
........................................................... 51
B. Key Legislation and Policies .............................................................
........................................................... 53
C. Section 7 Biological Evaluation
.....................................................................................................................57
D. List of Preparers, Consultation, and Coordination
....................................................................................67
E. Public Involvement
........................................................................................................................................69
F. Memorandum of Understanding
...................................................................................................................77
G. Appropriate Refuge Uses Policy
..................................................................................................................81
H. Compatibility Regulations
.............................................................................................................................89
I. Fire Management Program
.........................................................................................................................101
J. List of Occurring Plant Species ...................................................................................................................105
K. List of Occurring and Potentially Occurring Bird Species
.....................................................................109
L. List of Potentially Occurring Amphibian and Reptile Species ...............................................................113
M. List of Potentially Occurring Mammal Species
........................................................................................115
N. Compatibility Determinations .....................................................................................................................117
O. Divestiture
Model ...........................................................................................................................................123
Bibliography
............................................................................................................................................................. 125Figures and Tables
FIGURES
1
Vicinity map for Pathfinder NWR, Wyoming
............................................................................................... 2
2
Pathfinder NWR is located in the Wyoming Basin, physiographic area 86
............................................. 5
3
Platte–Kansas Rivers ecosystem. ................................................................................................................... 7
4
The planning process. ....................................................................................................................................... 8
5
Base map of Pathfinder NWR, Wyoming
.................................................................................................... 14
6
Habitats at Pathfinder NWR, Wyoming ...................................................................................................... 22
7
Infrastructure and public use areas at Pathfinder NWR, Wyoming ....................................................... 29
8
Location of Pathfinder NWR ......................................................................................................................... 30
9
Wyoming and study area population
............................................................................................................ 30
10
Study area age composition
........................................................................................................................... 31
11
Study area employment distribution, 2006 .................................................................................................. 31
12
Proposed boundary of Pathfinder NWR, Wyoming ................................................................................... 35
13
The adaptive management process. .............................................................................................................. 40
TABLES
1
Planning process summary for Pathfinder NWR, Wyoming ...................................................................... 9
2
Bureau of Reclamation irrigation rights for the Sweetwater
River and Horse Creek, Wyoming. ............................................................................................................... 20
3
Documented occurrences of vertebrate species of concern within
Pathfinder NWR, Wyoming. .......................................................................................................................... 26
4
Current staff for the Arapaho NWR Complex, Colorado
......................................................................... 32
5
Step-down management plans for Pathfinder NWR, Wyoming
.............................................................. 41Abbreviations
Administration Act
National Wildlife Refuge System Administration Act of 1966
BLM
Bureau of Land Management
BSFW
Bureau of Sport Fisheries and Wildlife
CCC
Civilian Conservation Corps
CCP
comprehensive conservation plan
CFR
Code of Federal Regulations
cfs
cubic feet per second
CRP
conservation reserve program
EA
environmental assessment
EO
executive order
FMP
fire management plan
FONSI
finding of no significant impact
FTE
full-time equivalent
GS
General Schedule (employment)
GIS
Geographic Information System
Improvement Act
National Wildlife Refuge System Improvement Act of 1997
NEPA
National Environmental Policy Act
NGO
nongovernmental organization
NOI
notice of intent
NWR
national wildlife refuge
NWRS
National Wildlife Refuge System
Reclamation
Bureau of Reclamation
Refuge System
National Wildlife Refuge System
Region 6
Mountain–Prairie Region of the U.S. Fish and Wildlife Service
RONS
Refuge Operations Needs System
SAMMS
Service Asset Maintenance Management System
Service
U.S. Fish and Wildlife Service
SUP
special use permit
SWG
State Wildlife Grant
TNC
The Nature Conservancy
USFWS
U.S. Fish and Wildlife Service
USGS
U.S. Geological Survey
WG
Wage Grade (employment)
WGFD
Wyoming Game and Fish Department
WUI
wildland–urban interfaceSummary
Photograph caption: Photograph caption: Photograph caption:
Photograph credit:
The U.S. Fish and Wildlife Service has developed this comprehensive conservation plan as the foundation for the management and use of the Pathfinder National Wildlife Refuge located in Carbon and Natrona counties, Wyoming. This plan, approved in 2008, will guide the management of the refuge for the next 15 years.
Assessing the refuge’s ability to provide quality wildlife habitat for migratory bird species and actively managing the refuge to achieve this end, along with identifying and providing appropriate public uses on the refuge, were key factors driving the development of this plan.
The National Wildlife Refuge System Improvement Act of 1997 requires the Service to develop a comprehensive conservation plan by 2012 for each national wildlife refuge in the National Wildlife Refuge System.
This brief summary describes the refuge, comprehensive conservation plan, and planning process.
ThE REFUGE
Located in central Wyoming in a high plains basin near the headwaters of the “Platte–Kansas Rivers” ecosystem, the Pathfinder National Wildlife Refuge lies approximately 47 miles southwest of the city of Casper.
Pathfinder Dam construction was completed in 1909, creating the first reservoir on the North Platte River. At the same time, the Pathfinder Wildlife Refuge (later renamed “Pathfinder National Wildlife Refuge”) was established as an overlay refuge on Bureau of Reclamation lands on the reservoir. This large body of water was very attractive to waterbirds, and where the refuge once offered a unique environment in this semiarid region of Wyoming, the reservoir on which it is situated is now part of a larger system of reservoirs including Alcova to the north and Seminoe to the south.
Major habitat types of the Pathfinder National Wildlife Refuge include open water wetlands, uplands consisting of shrub and grasslands, and alkali flats.
ThE PLANNING PROCESS
Through the environmental analysis process, the Service has selected as the preferred alternative (final comprehensive conservation plan) for the Pathfinder National Wildlife Refuge alternative C from the draft comprehensive conservation plan and environmental assessment published in July 2008.
In 2006, a planning team of refuge and other Service staff gathered and began to analyze resource information. The planning process included designing a vision for the refuge, along with identifying goals to reach the vision. After identifying key issues related to achieving the vision, the team developed management alternatives.
The team invited the public to participate in the planning process and public scoping. A mailing list of approximately 148 names was created and included private citizens; local, regional, and state government representatives and legislators; other federal agencies; tribal governments; and nonprofit organizations.
Key issues (habitat, wildlife, water quality, public outreach, public use, and refuge operations) were identified during analysis of concerns raised by refuge staff, along with analysis of public comments collected during scoping. These issues were addressed throughout the planning process and in the final comprehensive conservation plan. xii CCP, Pathfinder National Wildlife Refuge, WY
COMPREhENSIvE CONSERvATION PLAN
This plan includes detailed objectives and strategies
to carry out the vision and goals for the Pathfinder
National Wildlife Refuge.
Vision
Pathfinder Reservoir and surrounding public
lands supply life-cycle needs for a multitude
of wildlife adapted to this semiarid region of
central Wyoming. The wetland complexes,
upland sagebrush habitats, and open waters of
the reservoir provide feeding, breeding, staging,
resting, and nesting areas for migratory birds
and resident wildlife. Management decisions
will be directed toward maintaining or
improving wildlife habitat values. Appropriate
public use opportunities will be identified, and
provided where possible.
GOALS
The following goals will direct work toward achieving
the vision for the Pathfinder National Wildlife
Refuge.
Natural resource Goal
Conserve the ecological diversity of uplands and
wetlands to support healthy populations of native
wildlife, with an emphasis on migratory birds.
Visitor serVices Goal
Provide wildlife-dependent recreational
opportunities to a diverse audience when the
administration of these programs does not adversely
affect habitat management objectives.
PartNershiPs Goal
Work with partners to support healthy populations of
native wildlife and to increase the understanding of
wildlife needs as well as the benefits wildlife offer to
local communities.
C
Identify and evaluate the cultural resources on the
refuge and protect those that are determined to be
significant.
A
Obtain administrative capabilities that will result
in efficient strategies to manage the landscape to
achieve habitat and public management goals.
1 IntroductionPhotograph caption: Photograph credit:
The U.S. Fish and Wildlife Service (Service, USFWS) has developed this comprehensive conservation plan (CCP) to provide a foundation for the management and use of the Pathfinder National Wildlife Refuge (NWR) located in central Wyoming near the city of Casper (figure 1). It is intended to be a working guide for management programs and actions over the next 15 years for Pathfinder NWR.
This CCP was developed in compliance with the National Wildlife Refuge System Improvement Act of 1997 (Improvement Act) and Part 602 (National Wildlife Refuge System Planning) of “The Fish and Wildlife Service Manual.” The actions described within this CCP meet the requirements of the National Environmental Policy Act of 1969 (NEPA). Compliance with the NEPA is being achieved through the involvement of the public and inclusion of an integrated environmental assessment (EA) in the previous draft document (see the environmental compliance documents in appendix A).
The CCP specifies the necessary actions to achieve the vision and purposes of Pathfinder NWR. Wildlife is the first priority in refuge management, and public use (wildlife-dependent recreation) is allowed and encouraged as long as it is compatible with the refuge’s purpose.
The CCP has been prepared by a planning team consisting of representatives from various Service programs (refuge planning, education and visitor services, and ecological services), the Bureau of Reclamation (Reclamation), the Bureau of Land Management (BLM), and the Wyoming Game and Fish Department (WGFD). In addition, the planning team incorporated public input. Public involvement and the planning process are described in “The Planning Process” section of this chapter.
PURPOSE AND NEED FOR ThE PLAN
The purpose of this CCP is to identify the role that the refuge will play in support of the mission of the National Wildlife Refuge System (Refuge System), and to provide long-term guidance for management of refuge programs and activities. The CCP is needed:
to communicate with the public and other RRpartners in efforts to carry out the mission of the Refuge System;
to provide a clear statement of direction for RRmanagement of the refuge;
to provide neighbors, visitors, and government RRofficials with an understanding of the Service’s management actions on and around the refuge;
to ensure that the Service’s management RRactions are consistent with the mandates of the Improvement Act;
to ensure that management of the refuge is RRconsistent with federal, state, and county plans;
to provide a basis for development of RRbudget requests for the refuge’s operation, maintenance, and capital improvement needs.2 CCP, Pathfinder National Wildlife Refuge, WY
Figure title: VFigure title: Chapter 1 — Introduction 3
Sustaining the nation’s fish and wildlife resources
is a task that can be accomplished only through the
combined efforts of governments, businesses, and
private citizens.
ThE U.S. FISh AND WILDLIFE SERvICE
AND ThE REFUGE SYSTEM
The Service is the principal federal agency
responsible for fish, wildlife, and plant conservation.
The Refuge System is one of the Service’s major
programs.
U
The mission of the U.S. Fish and Wildlife
Service is working with others to conserve,
protect, and enhance fish, wildlife, plants, and
their habitats for the continuing benefit of the
American people.
Over a century ago, America’s fish and wildlife
resources were declining at an alarming rate.
Concerned citizens, scientists, and hunting and
angling groups joined together to restore and sustain
America’s national wildlife heritage. This was the
genesis of the U.S. Fish and Wildlife Service.
Today, the Service enforces federal wildlife laws,
manages migratory bird populations, restores
nationally significant fisheries, conserves and
restores vital wildlife habitat, protects and recovers
endangered species, and helps other governments
with conservation efforts. In addition, the Service
administers a federal aid program that distributes
hundreds of millions of dollars to states for fish and
wildlife restoration, boating access, hunter education,
and related programs across America.
NatioNal WildliFe ReFuGe System
In 1903, President Theodore Roosevelt designated
the 5.5-acre Pelican Island in Florida as the nation’s
first wildlife refuge for the protection of brown
pelicans and other native, nesting birds. This small
but significant designation was the beginning of the
Refuge System.
Over one hundred years later, the Refuge System
has become the largest collection of lands in the
world specifically managed for wildlife, encompassing
over 96 million acres within 546 refuges and over
3,000 small areas for waterfowl breeding and nesting.
Today, there is at least one refuge in every state
as well as Puerto Rico, Guam, and the U.S. Virgin
Islands.
In 1997, the Improvement Act established a clear
mission for the Refuge System.
The mission of the National Wildlife Refuge
System is to administer a national network
of lands and waters for the conservation,
management, and where appropriate,
restoration of the fish, wildlife, and plant
resources and their habitats within the United
States for the benefit of present and future
generations of Americans.
The Improvement Act states that each national
wildlife refuge shall be managed
RR to fulfill the mission of the Refuge System;
RR to fulfill the individual purposes of each refuge;
RR to consider the needs of fish and wildlife first;
RR to fulfill the requirement of developing a CCP
for each unit of the Refuge System and fully
involve the public in the preparation of these
plans;
RR to maintain the biological integrity, diversity,
and environmental health of the Refuge
System;
RR to recognize that the six wildlife-dependent
recreation activities (hunting, fishing,
wildlife observation and photography, and
environmental education and interpretation)
are legitimate and priority public uses;
RR to retain the authority of refuge managers to
determine compatible public uses.
In addition to the mission for the Refuge System, the
wildlife and habitat vision for each unit of the Refuge
System stresses the following principles:
RR Wildlife comes first.
RR Ecosystems, biodiversity, and wilderness are
vital concepts.
RR Habitats must be healthy.
RR Growth of the Refuge System must be
strategic.
RR The Refuge System serves as a model for
habitat management with broad participation
from others.
Following passage of the Improvement Act, the
Service immediately began to carry out the direction
of the new legislation, including preparation of
CCPs for all national wildlife refuges and wetland
management districts. Consistent with the
Improvement Act, the Service prepares all CCPs in
conjunction with public involvement. Each refuge
is required to complete its CCP within the 15-year
schedule (by 2012).
4 CCP, Pathfinder National Wildlife Refuge, WY
PeoPle aNd the reFuGe system
The nation’s fish and wildlife heritage contributes to the quality of American lives. Wildlife and wild places provide special opportunities to recreate, relax, and enjoy the natural world.
Whether through bird watching, fishing, hunting, photography, or other wildlife pursuits, wildlife recreation contributes millions of dollars to local economies. In 2006, nearly 35 million people visited the Refuge System, mostly to observe wildlife in their natural habitats (Carver and Caudill 2007). Visitors are most often accommodated through nature trails, auto tours, interpretive programs, and hunting and fishing opportunities. Significant economic benefits are being generated to the local communities that surround refuges. During fiscal year 2006, recreational use on national wildlife refuges generated almost $1.7 billion of sales in regional economies, supported approximately 27,000 private sector jobs, produced about $543 million in employment income, and generated nearly $185.3 million in tax revenue at the local, county, state, and federal levels (Carver and Caudill 2007).
NATIONAL AND REGIONAL MANDATES
Refuge System units are managed to achieve the designated purpose of the refuge (as described in establishing legislation, executive orders, or other establishing documents) and the mission and goals of the Refuge System. Key concepts and guidance of the Refuge System are in the Refuge System Administration Act of 1966 (Administration Act), Title 50 of the Code of Federal Regulations (CFR), “The Fish and Wildlife Service Manual,” and the Improvement Act.
The Improvement Act amends the Administration Act by providing a unifying mission for the Refuge System, a new process for determining compatible public uses on refuges, and a requirement that each refuge be managed under a CCP. The Improvement Act states that wildlife conservation is the priority of Refuge System lands and that the Secretary of the Interior will ensure that the biological integrity, diversity, and environmental health of refuge lands are maintained. Each refuge must be managed to fulfill the Refuge System’s mission and the specific purposes for which it was established. The Improvement Act requires the Service to monitor the status and trends of fish, wildlife, and plants in each refuge.
A detailed description of these and other laws and executive orders that may affect the CCP or the Service’s implementation of the CCP is in appendix B. Service policies on planning and day-to-day management of refuges are in the “Refuge System Manual” and “The Fish and Wildlife Service Manual.”
REFUGE CONTRIBUTIONS TO NATIONAL AND REGIONAL PLANS
Pathfinder NWR contributes to the conservation efforts described here.
FulFilliNG the Promise
A 1999 report, “Fulfilling the Promise: The National Wildlife Refuge System” (U.S. Fish and Wildlife Service [USFWS] 1999), is the culmination of a yearlong process by teams of Service employees to evaluate the Refuge System nationwide. This report was the focus of the first national Refuge System conference in 1998 attended by refuge managers, other Service employees, and representatives from leading conservation organizations.
The report contains 42 recommendations packaged with three vision statements dealing with wildlife and habitat, people, and leadership. This CCP deals with all three of these major topics. The planning team looked to the recommendations in the document for guidance during CCP planning.
PartNers iN FliGht
The Partners in Flight program began in 1990 with the recognition of declining population levels of many migratory bird species. The challenge, according to the program, is managing human population growth while maintaining functional natural ecosystems. To meet this challenge, Partners in Flight worked to establish priorities for conservation efforts and identify land bird species and habitat types. Partners in Flight activity has resulted in 52 bird conservation plans covering the continental United States.
The primary goal of Partners in Flight is to provide for the long-term health of the bird life of North America. The first priority is to prevent the rarest species from going extinct, the second is to prevent uncommon species from descending into threatened status, and the third is to “keep common birds common.”
There are 58 physiographic areas, defined by similar physical geographic features, wholly or partially contained within the contiguous United States and several others wholly or partially in Alaska. Pathfinder NWR falls within physiographic area 86, the Wyoming Basin (figure 2).
The Wyoming Basin is primarily in Wyoming but also extends into northern Colorado, southern Montana, and very small parts of northeast Utah and southeast Idaho. The area consists of broad intermountain basins interrupted by isolated hills and low mountains that merge to the south into a dissected plateau. The Wyoming Basin is primarily shrub–steppe habitat, dominated by sagebrush and Chapter 1 — Introduction 5
shadscale, interspersed with areas of short-grass prairie. Higher elevations are in mountain shrub vegetation, with coniferous forest atop the highest areas. Priority bird populations and habitats of the Wyoming Basin include:Shrub–Steppe Ferruginous hawk Prairie falcon Greater sage-grouse Cassin’s kingbird Sage thrasher Brewer’s sparrow Sage sparrowSagebrush Grasslands Swainson’s hawk Mountain plover McCowan’s longspurMontane Shrub Lewis’s woodpecker Virginia’s warblerWetlands American white pelican Wilson’s phalarope
A large percentage of the Wyoming Basin is in public ownership, with the BLM owning much of the lower elevation shrub–steppe and grassland and the U.S. Forest Service owning a great deal of the higher-elevation wooded land. A checkerboard pattern of land ownership is a subtle problem that affects the consistency of land management over large areas. The primary land use in the Wyoming Basin has been for many years and continues to be grazing, although conversion to agriculture is also an issue. The effects of overgrazing and nonnative plant invasion should be mitigated to improve conditions for breeding birds. Maintenance of springs and riparian habitat may be crucial, particularly to sage-grouse. Fencing or changing grazing systems may be effective in maintaining water flow. Oil and gas extraction and hard rock mining are relatively recent factors that may negatively affect the greater landscape needs of the sage-grouse (Nicholoff 2003).
Figure title:
R
ecoVerylaNsForederallyistedthreateNed or eNdaNGered sPecies
P F L
The Service conducted a biological evaluation of the actions in this CCP per section 7 of the Endangered Species Act (see appendix C). Where federally listed threatened or endangered species occur at Pathfinder NWR, management goals and strategies in their 6 CCP, Pathfinder National Wildlife Refuge, WY
respective recovery plans will be followed. The list of threatened or endangered species that occur at the refuge will change as species are listed or delisted, or as listed species are discovered on refuge lands. Currently, no federally listed threatened or endangered species occur at the refuge.
SSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSSS
Over the past several decades, documented declines of wildlife populations have occurred nationwide. Congress created the State Wildlife Grant (SWG) program in 2001. This program provides states and territories with federal dollars to support conservation aimed at preventing wildlife from becoming endangered and in need of protection under the Endangered Species Act. The SWG program represents an ambitious endeavor to take a proactive role in keeping species from becoming threatened or endangered in the future.
According to the SWG program, each state or territory and the District of Columbia must have completed a comprehensive wildlife conservation strategy (CWCS) by October 1, 2005, to receive future funding.
These strategies will help define an integrated approach to the stewardship of all wildlife species, with additional emphasis on species of concern and habitats at risk. The goal is to shift focus from single-species management and highly specialized individual efforts to a geographically based, landscape-oriented, fish and wildlife conservation effort. The Service approves CWCSs and administers SWG program funding.
The CWCS for the state of Wyoming was reviewed and information therein was used during the development of the CCP. Implementation of CCP habitat goals and objectives will support the goals and objectives of the CWCS.
ECOSYSTEM DESCRIPTION AND ThREATS
Pathfinder NWR is located within the Platte–Kansas Rivers ecosystem, which includes almost all of Nebraska, southeast Wyoming, northeast Colorado, and northern Kansas (figure 3). The ecosystem is home to the Nebraska Sandhills, the largest sand dune complex in the western hemisphere. This area and many others provide vital habitat for numerous threatened and endangered wildlife and plant species.
The ecosystem spans snow-capped, barren mountain peaks in Colorado to lowland riparian cottonwood forests along the Missouri River in eastern Nebraska and Kansas. The mountainous regions are predominately a mixture of coniferous forests comprised of Douglas-fir, ponderosa pine, lodgepole pine, Engelmann spruce, and subalpine fir. Pinyon pine, juniper woodlands, and aspen communities are also common throughout. At high elevation, alpine meadows and lakes, willow shrublands, and barren, rocky areas are frequently found. Forests generally transition into shrub communities dominated by sagebrush with short grasses and forbs in eastern Wyoming and western Nebraska. Farther to the east, trees give way to short-grass prairie dominated by buffalo grass, blue grama, hairy grama, and western wheatgrass. The short-grass prairie turns into mixed-grass prairie in central Nebraska and Kansas, due primarily to greater annual rainfall.
Threats to the Platte–Kansas Rivers ecosystem that require attention include overgrazing of land, invasive plants, population growth and housing development, and groundwater and surface-water depletion. To overcome these threats, the priorities for the ecosystem will be to ensure that natural, healthy ecological processes dominate and that economic development complements environmental protection.
ThE PLANNING PROCESS
This CCP for Pathfinder NWR is intended to comply with the Improvement Act and the NEPA as well as the implementing regulations of the acts. The Service issued its Refuge System planning policy in 2000, which established requirements and guidance for refuge plans—including CCPs and step-down management plans—to ensure that planning efforts comply with the Improvement Act. The planning policy identifies several steps of the CCP and EA process (also see figure 4):
Form a planning team and conduct preplanning.RR
Initiate public involvement and scoping.RR
Draft the vision statement and goals.RR
Develop and analyze alternatives, including the RRproposed action.
Prepare the draft CCP and EA.RR
Prepare and adopt the final CCP and EA RRand issue a “finding of no significant impact” (FONSI) or determine if an environmental impact statement is needed.
Implement the CCP; monitor and evaluate.RR
Review the CCP every 5 years and revise it RRevery 15 years.
The Service began the preplanning process for Pathfinder NWR in January 2006. The planning team consisted of representatives from various Service programs (refuge planning, education and visitor services, and ecological services), the Bureau of Reclamation, the Bureau of Land Management, and the Wyoming Game and Fish Department. Chapter 1 — Introduction 7
Figure title: 8 CCP, Pathfinder National Wildlife Refuge, WY
A list of planning team members and other major contributors to the development of this CCP is in appendix D.
At the start of the CCP process, the refuge was evaluated by the planning team using the Mountain–Prairie Region Divestiture Model (appendix O) to determine whether or not it warranted status as a national wildlife refuge. Designed as a preplanning tool, the model allows planners and refuge managers to determine whether or not a refuge should be considered for divestiture. In the case of Pathfinder NWR, the model indicated that, although the majority of the refuge does not meet the purpose of the refuge and the goals of the Refuge System, approximately 5,000 acres of the refuge provide valuable habitat for migratory birds.
Following this analysis, the Service developed three unique management alternatives based on the issues, concerns, and opportunities expressed during the scoping process. The evaluation of the alternatives was documented in “Draft Comprehensive Conservation Plan and Environmental Assessment—Pathfinder National Wildlife Refuge,” which was published in July 2008. After the public comment period for the draft CCP and EA, the Service finalized the CCP.
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Figure title:
CCCCCCCCCCCCCCCCCCCCCCCCCCC
The Service held two public scoping meetings in May 2006 (see table 1 for details) announced by the local media. During the public meetings, a description of the CCP and NEPA process was provided. Participants were asked to provide suggestions on the scope of issues to be considered in the planning process, and comments were recorded and entered in the planning record. Attendees were encouraged to ask questions and offer comments; each attendee was given a comment form to submit additional thoughts or questions in writing.
Approximately 51 people attended the public meetings. Attendees included local citizens and members of Audubon Wyoming, the Wyoming Outdoor Council, and Biodiversity Conservation Alliance.
Written comments were due July 17, 2006. A total of 70 written comments were received throughout the scoping process. Input obtained from meetings and correspondence including email was considered in development of this CCP.
A mailing list of more than 148 contacts includes private citizens; local, regional, and state government Chapter 1 — Introduction 9
representatives and legislators; other federal
agencies; and interested organizations (appendix E).
In September 2006, the first planning update was
sent to everyone on the mailing list. Information
was provided on the history of the refuge and the
CCP process, along with an invitation to share ideas
regarding refuge management with the planning
team.
Table 1. Planning process summary for Pathfinder NWR, Wyoming.
Date Event Outcome
January–March 2006 Preplanning. CCP overview; established planning team;
identified purpose of the refuge, history, and
establishing authority; developed planning schedule
and CCP mailing list.
April 27, 2006 Kickoff meeting. Toured refuge; conducted internal scoping by
developing issues and qualities list for the refuge;
identified biological and mapping needs; developed a
vision statement for the refuge.
May 8, 2006 News release for public
meeting sent to Wyoming
media contacts.
Notified public of opportunities for involvement in
the CCP process.
May 24, 2006 Public meeting in Casper,
WY.
Opportunity for the public to learn about the CCP
and offer suggestions on the scope of issues to be
considered in the planning process.
May 25, 2006 Public meeting in Laramie,
WY.
Opportunity for the public to learn about the CCP
and offer suggestions on the scope of issues to be
considered in the planning process.
June 16, 2006 NOI (to prepare the CCP)
published in the “Federal
Register.”
Notified the public of the intention to prepare a
CCP and EA for Pathfinder NWR.
August 31, 2006 Goals and alternatives
workshop.
Goals developed; alternatives discussed.
September 2006 Planning update distributed
to CCP mailing list.
Planning update (describing CCP process and
providing opportunity for public suggestions on
the scope of issues to be considered in the planning
process).
January 25, 2007 Environmental consequences
workshop and identification
of the proposed action.
Reviewed the anticipated environmental
consequences; identified alternative C as the
proposed action.
May 2008 Internal review of the draft
CCP and EA.
Received comments on the draft CCP and EA.
July 2008 Planning update (issue 2)
distributed to CCP mailing
list.
Planning update (describing the CCP, vision, and
goals and how to provide comments on the draft
CCP and EA).
July 28, 2008 Release of draft CCP and EA
for public review.
Draft CCP and EA presented to the public;
received comments on the draft CCP and EA.
August 18, 2008 Public meeting in Casper,
WY.
Increased public understanding of the draft CCP
and EA; received public comments about the draft
CCP and EA.
September 18, 2008 CCP approval. Selection of the preferred alternative (C) for the
final CCP.
S
On January 27, 2006, an invitation letter to
participate in the CCP process was sent by the
Service’s region 6 director to the director of
the Wyoming Game and Fish Department. Two
representatives from the WGFD are part of the CCP
planning team. Local WGFD wildlife biologists and
the refuge staff had established excellent ongoing
working relations before starting the CCP process.
10 CCP, Pathfinder National Wildlife Refuge, WY
The Wyoming Game and Fish Department is charged with providing “an adequate and flexible system for the control, management, protection, and regulation of all Wyoming wildlife.” The WGFD maintains 36 Wildlife Habitat Management Areas and 96 Public Access Areas, encompassing 410,000 acres of managed lands for wildlife habitat and public recreation opportunity. These lands contain 121 miles of stream easements and about 21,014 surface acres of lakes and reservoirs for public access (Wyoming Game and Fish Department 2006).
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On October 17, 2006, five Native American tribal governments (Arapaho, Crow, Northern Cheyenne, Oglala Sioux, and Shoshone) were contacted through a letter signed by Service’s region 6 director. With information about the upcoming CCP, the letter invited tribal recipients to serve on the planning team. Although Native American tribal governments did not express interest in participating on the planning team, the tribal governments remain on the CCP mailing list and will continue to receive CCP correspondence.
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Table 1 summarizes the CCP process. Comments collected from scoping meetings and correspondence, including comment forms, were used in the development of a final list of issues that were addressed in the draft CCP and EA.
The Service determined which alternatives could best address these issues. The planning process ensures that issues with the greatest impact on the refuge are resolved or given priority over the life of the final CCP. Identified issues, along with a discussion of effects on resources, are summarized in chapter 2.
In addition, the Service considered suggested changes to current refuge management presented by the public and other groups. 2 The RefugePhotograph caption: Photograph credit:
The Pathfinder Wildlife Refuge (later renamed the “Pathfinder National Wildlife Refuge”) was established by executive order (EO) in 1909. The refuge’s boundaries have been modified several times since its establishment. The present-day refuge comprises four separate units—Sweetwater Arm, Goose Bay, Deweese Creek, and Sage Creek—totaling 16,806 acres (see figure 5).
ESTABLIShMENT, ACqUISITION, AND MANAGEMENT hISTORY
The origins of present-day Pathfinder NWR can be traced to June 17, 1902, when Congress authorized the Bureau of Reclamation to build the Pathfinder Dam and Reservoir in central Wyoming. When dam construction was completed in 1909, the refuge was established on the reservoir as an overlay refuge on Reclamation lands. Wildlife management must be compatible with those uses for which Reclamation acquired the land.
Below is a summary of the legislation that has shaped the refuge over the years:
EO 1032 (February 25, 1909)—established RRPathfinder Wildlife Refuge on the Pathfinder Reservoir site “as a preserve and breeding ground for native birds.”
EO 3725 (August 18, 1922)—revoked that part RRof EO 1032 reserving the Pathfinder Reservoir site for use “as a preserve and breeding ground for native birds.”
EO 4860 (April 19, 1928)—reestablished the RRarea created by EO 1032 “as a preserve and breeding ground for native birds.”
EO 7425 (August 1, 1936)—established the RRpresent refuge and designated it “as a refuge and breeding ground for birds and other wildlife.”
EO 8296 (November 30, 1939)—changed the RRrefuge name from “Pathfinder Wildlife Refuge” to “Pathfinder National Wildlife Refuge.”
Reclamation administers lands within the Pathfinder Reservoir boundary for North Platte Project purposes including flood control, irrigation, and hydroelectric power generation. A memorandum of understanding (MOU) specifies the management responsibilities of the Bureau of Sport Fisheries and Wildlife (BSFW), the Service’s predecessor, while preserving the autonomy of Reclamation to manage Pathfinder Dam and Reservoir (see appendix F).
The North Platte Project is a 111-mile irrigation project stretching along the North Platte River Valley from Guernsey, Wyoming, to Bridgeport, 12 CCP, Pathfinder National Wildlife Refuge, WY
Nebraska (U.S. Department of the Interior, Bureau of Reclamation [USBR]). The project provides full-service irrigation for about 226,000 acres and supplemental irrigation service for a combined area of roughly 109,000 acres. The project includes five storage dams, four diversion dams, a pumping plant, and a power plant, as well as about 2,000 miles of canals, laterals, and drains.
Many mountain streams rising in the Rocky Mountains of Colorado and Wyoming feed the North Platte River. Its waters are stored and used for irrigation and power development for the North Platte Project and related projects. These projects’ storage structures require close operational coordination, which is further complicated by various agreements and laws governing water rights.
Before reaching the Pathfinder Reservoir, the North Platte River waters pass through the Seminoe and Kortes dams, where they are joined by waters from the Sweetwater River. Pathfinder Reservoir holds much of the North Platte Project water, with a storage capacity of 1,016,000 acre-feet. A small amount of water is released during the nonirrigation season to satisfy other water rights, enhance fish and wildlife, and operate power plants downstream, and during the irrigation season, water is released as required.
Pathfinder Dam is located about 3 miles below the North Platte River’s junction with the Sweetwater River.
In the 1960s, the BSFW became increasingly concerned with the decline in waterfowl use of the reservoir. This decline was attributed to various ecological changes resulting from Reclamation activities, particularly water manipulation. Recreational activities were also increasing, and the trend was expected to continue. The BSFW concluded that developing and intensively managing only areas that had existing and potential waterfowl attraction would better benefit wildlife than continuing extensive management of the entire area. To this effect, various memorandums of agreement and understanding were signed with Reclamation and other agencies that oversee lands on the Pathfinder Reservoir:
February 12, 1963—a proposal was made to RRlimit the boundary of Pathfinder NWR to include only the Sweetwater Arm Unit and three small areas (Goose Bay, Deweese Creek, and Sage Creek units) designated for waterfowl production on the main body of the reservoir.
May 20, 1963—the proposal was approved in a RRmemorandum to the BSFW’s regional director of the division of technical services.
May 19, 1964—the proposal was carried out RRthrough partial revocation of EO 7425, which deleted 31,545 acres from the refuge.
May 26, 1964—an MOU was signed between RRReclamation and the BSFW (contract #14-06-700-4605), allowing the latter to manage land and water areas, including grazing, recreation, and related uses, for the conservation of wildlife resources (appendix F).
September 10, 1964—the BSFW submitted an RRapplication to the BLM for the withdrawal of lands from the BLM to add 1,971.97 acres to Pathfinder NWR. The withdrawal of 1,574.84 acres of land was completed November 4, 1964, and serial number Wyoming 0311814 was assigned.
May 7, 1965—Public Land Order 3657 placed RR2,554 acres of public land under the primary responsibility of the BSFW through a realignment of the refuge boundary.
November 16, 1965—an MOA (contract #14-06-RR700-4737) between Reclamation, the BLM, and the BSFW transferred administration of the grazing program to the BLM.
May 19, 1966—an MOU (contract #14-06-RR700-4749) between Reclamation, the Natrona County Commissioners, and the BSFW was established concerning the administration and development of land and facilities at Alcova, Pathfinder, and Grays Reef reservoirs for recreational purposes.
May 19, 1991—an MOU (contract # 1-AG-60-RR01340) between Reclamation and Natrona County replaced the MOU dated May 19, 1966. The area at Pathfinder NWR covered by this MOU is the Bishops Point Recreation Area in the Sweetwater Arm Unit. These recreational lands are currently within the refuge’s boundary and therefore are subject to the Service’s appropriate refuge uses policy (appendix G) and compatibility regulations (appendix H).
SPECIAL vALUES OF ThE REFUGE
Early in the planning process, the planning team and public identified the outstanding qualities of Pathfinder NWR, the characteristics and features that make it special to people, valuable for wildlife, and worthy of refuge status. Identifying these values at the outset helps ensure they will be preserved, protected, and enhanced throughout the planning process. Refuge qualities can range from providing a unique biological habitat for wildlife to offering visitors a quiet place to observe a variety of birds and enjoy nature. The following summarizes the qualities that make portions of the refuge unique and valued.
Wildlife and habitat
Forty species of waterfowl, wading birds, and RRshorebirds use the refuge for migration and Chapter 2 — The Refuge 13
nesting including mountain plover, phalarope,
avocet, redhead duck, and scaup.
RR The Steamboat Lake area of the Sweetwater
Arm Unit provides important feeding and
nesting habitat for waterfowl and other
migratory bird species.
RR The refuge contains a large body of water in
a semiarid environment that provides resting
habitat for migratory birds.
RR Uplands sagebrush habitat on the refuge
supports sage-grouse, antelope, and other sage-obligate
species.
RR The refuge is designated an “Important Bird
Area” by Audubon Wyoming.
RR A state-listed rare plant, slender spiderflower,
is present at the Sweetwater Arm Unit of the
refuge.
RR The potential exists to form partnerships with
other agencies and with private landowners in
the area that are interested in maintaining and
improving the refuge’s natural resources.
RR Currently, there is little pressure for
development near the refuge.
Phalarope Chicks
USFWS
Public Use
RR The refuge provides a variety of public
recreation including the six priority public
uses of the Refuge System (hunting, fishing,
wildlife observation and photography, and
environmental education and interpretation).
RR The Steamboat Lake area of the refuge
provides wildlife observation and interpretation
opportunities.
RR The Oregon Trail and Independence Rock offer
opportunities to showcase the refuge to the
public.
RR The refuge offers visitors open space and
the opportunity to experience solitude in an
aesthetically pleasing environment.
PURPOSE
Every refuge is established for a purpose. This
purpose is the foundation upon which to build all
refuge programs, from biology and public use to
maintenance and facilities. No action that the Service
or public takes may conflict with this refuge purpose.
The refuge purpose is found in the legislative acts or
administrative orders, which are the authorities to
either transfer or acquire a piece of land for a refuge.
Over time an individual refuge may contain lands
that have been acquired under a variety of transfer
and acquisition authorities, giving it more than
one purpose. The goals, objectives, and strategies
identified in the CCP are intended to support
the individual purpose for which the refuge was
established.
As stated in EO 7425, the purpose of Pathfinder
NWR is “as a refuge and breeding ground for birds
and other wildlife.”
Vision
At the beginning of the planning process, the Service
developed a vision for Pathfinder NWR. A vision
describes what will be different in the future as a
result of the CCP and is the essence of what the
Service is trying to accomplish at the refuge. The
vision is a future-oriented statement designed to be
achieved through refuge management by the end
of the 15-year CCP planning horizon. The vision for
Pathfinder NWR is the following:
Pathfinder Reservoir and surrounding public
lands supply life-cycle needs for a multitude
of wildlife adapted to this semiarid region of
central Wyoming. The wetland complexes,
upland sagebrush habitats, and open waters of
the reservoir provide feeding, breeding, staging,
resting, and nesting areas for migratory birds
and resident wildlife. Management decisions
will be directed toward maintaining or
improving wildlife habitat values. Appropriate
public use opportunities will be identified, and
provided where possible.
GOALS
The Service also developed a set of goals for the
refuge based on the Improvement Act, the refuge
purpose, and information developed during project
planning. The goals direct work toward achieving
the vision and purpose of the refuge and outline
approaches for managing refuge resources. The
14 CCP, Pathfinder National Wildlife Refuge, WY
Figure title: Chapter 2 — The Refuge 15
following five goals were identified for Pathfinder NWR.
Natural Resources Goal
Conserve the ecological diversity of uplands and wetlands to support healthy populations of native wildlife, with an emphasis on migratory birds.
V
Provide wildlife-dependent recreational opportunities to a diverse audience when the administration of these programs does not adversely affect habitat management objectives.
Partnerships Goal
Work with partners to support healthy populations of native wildlife and to increase the understanding of wildlife needs as well as the benefits wildlife offer to local communities.
Cultural Resources Goal
Identify and evaluate the cultural resources on the refuge and protect those that are determined to be significant.
Administrative Goal
Obtain administrative capabilities that will result in efficient strategies to manage the landscape to achieve habitat and public management goals.
PLANNING ISSUES
Several key issues were identified following the analysis of comments collected from refuge staff and the public, as well as during a review of the requirements of the Improvement Act and the NEPA. Substantive comments (those that could be addressed within the authority and management capabilities of the Service) were considered during the formulation of the alternatives for future management. These key issues for Pathfinder NWR are summarized below.
Refuge Management
Pathfinder NWR is part of the Arapaho NWR Complex. Refuge staff are headquartered near Walden, Colorado, approximately a four-hour drive from the refuge. The complex’s small staff size (four full-time employees), limited resources, and remote headquarters create management challenges for the refuge, including a lack of day-to-day oversight and minimal opportunities for law enforcement. Degrading infrastructure (specifically, roads, fences, and signs) and litter occur on the refuge due to lack of active management.
Management of Pathfinder Reservoir and refuge lands by multiple agencies creates additional management challenges. The Service currently has memorandums of agreement and understanding with a number of agencies in the Casper region including Reclamation, BLM, WGFD, and Natrona County. Reclamation has a withdrawal on Pathfinder Reservoir lands to support North Platte Project purposes (i.e., flood control, irrigation, and hydroelectric power generation). The Service has a withdrawal on refuge lands for wildlife management purposes. The roles and responsibilities of each agency should be clearly defined, evaluated, and simplified where possible during the CCP process.
Refuge Uses
Refuge uses (grazing and recreation) need to be evaluated to ensure existing and proposed uses are compatible with the purpose of the refuge and mission of the Refuge System. Refuge uses have not been actively evaluated over time due to minimal staff presence. Through the development of this CCP, refuge uses and management activities will be evaluated to ensure the best, most informed decisions are made for proper management of refuge lands. For a use to be deemed compatible, appropriate staff and resources must be available to manage the use.
Water Resources
Water and water availability are vital in semiarid regions. The Service does not own water rights for the refuge, which can result in poor wildlife habitat for trust species.
Water Level Fluctuation
During the past 20 years the average fluctuation of the Pathfinder Reservoir water level was 20 feet per year with a range of 8–40 feet, resulting in a lack of shoreline vegetation and food source for migratory birds and nesting cover for waterfowl. The Bureau of Reclamation is responsible for managing reservoir water levels.
Separated Land Parcels
The refuge consists of four separate units. Separated land parcels are generally more difficult to access and manage than contiguous parcels of land, and generally of less value to wildlife.
Invasive Species
Invasive species are a threat to quality habitat. If not contained early, they can also drain resources. Tamarisk and Canada thistle have been identified on the refuge. An increase in monitoring, management, and control of these and other invasive species is needed.
Research and Science
The Service needs to obtain good baseline data for the refuge. Monitoring programs need to be 16 CCP, Pathfinder National Wildlife Refuge, WY
implemented for species that use the refuge. Audubon Wyoming could be a partner in gathering quality research data on the refuge.
Partnerships
Cooperation with other agencies is needed to address issues of common concern. Opportunities for the public to assist in the protection and management of the refuge should be identified and provided. Local conservation groups could help raise funds for the refuge either directly or by lobbying state and federal representatives.
Staffing
The refuge should be managed by Service staff stationed in Wyoming. This issue was raised frequently in public meetings. The managing staff is currently headquartered at Arapaho NWR in Walden, Colorado, a four-hour drive from the refuge. The remote location of staff prevents active, consistent oversight of the refuge.3 Refuge Resources and DescriptionPhotograph caption: Photograph credit:
Located in central Wyoming in a high plains basin near the headwaters of the Platte–Kansas Rivers ecosystem, Pathfinder NWR lies approximately 47 miles southwest of the city of Casper. Since the refuge was established on the Pathfinder Reservoir in 1909, many other reservoirs have been created, including Alcova to the north and Seminoe to the south, and the refuge no longer offers a unique environment for wildlife in this semiarid region of Wyoming.
This chapter describes the refuge’s setting, as follows:
physical environmentRR
biological resourcesRR
cultural resourcesRR
special management areasRR
visitor servicesRR
partnershipsRR
socioeconomic environmentRR
operationsRR
PhYSICAL ENvIRONMENT
This section describes global warming as well as the climate, soils, water resources, and air quality at the refuge.
Global WarmiNG
The U.S. Department of the Interior issued an order in January 2001 requiring federal agencies under its direction that have land management responsibilities to consider potential climate change effects as part of long-range planning endeavors.
The U.S. Department of Energy’s 1999 report, “Carbon Sequestration Research and Development,” concluded that ecosystem protection is important to carbon sequestration and may reduce or prevent loss of carbon currently stored in the terrestrial biosphere. The report defines carbon sequestration as “the capture and secure storage of carbon that would otherwise be emitted to or remain in the atmosphere.”18 CCP, Pathfinder National Wildlife Refuge, WY
The increase of carbon dioxide (CO2) within the earth’s atmosphere has been linked to the gradual rise in surface temperature commonly referred to as “global warming.” In relation to comprehensive conservation planning for Refuge System units, carbon sequestration constitutes the primary climate-related effect to be considered in planning.
CCCCCCC
The annual precipitation as recorded at Pathfinder Dam averages 9.55 inches (Western Regional Climate Center [WRCC]). The average maximum temperature is 58.3ºF, average minimum temperature is 33.4ºF, and extremes range from a summer high of approximately 100ºF to a winter low of approximately −40ºF (WRCC). High winds buffet the area in all seasons, creating ground blizzard conditions in winter and windblown deposition of soils in the spring through fall.
PhysioGraPhy
The Pathfinder Reservoir area consists almost entirely of Miocene age tertiary sediments with outcrops of Precambrian granite. A small area of quaternary alluvial bedrock is found on the west end of the Sweetwater Arm Unit, as well as small deposits of dune sand or loess (loamy deposits) on the Deweese Creek Unit (Larson and Letts 2003). There is little indication of geologic influence from glaciation, and the North Platte River primarily cuts through the granite in the area, creating spectacular canyons but little in the way of flood plains. The Sweetwater River, when reservoir conditions reveal it, seems to have had some history of meandering, and the formation of a flood plain with it. Shifting sand areas (dunes) occur on the western shore of the reservoir and farther to the southwest. The high water mark of the reservoir is 5,850 feet, but lands are regularly exposed below this elevation. The highest point on the refuge is a 6,360-foot rock outcrop on the northwest portion of the Sweetwater Arm Unit.
SSSSS
Soils in the Sweetwater Arm Unit, located in Natrona County, are comprised of 13 different soil types. Soils found in the eastern half of the unit include Bosler-Alcova, Haverdad-Clarkelen, Delphill-Blazon, Bronsto-Lupinto, and McFadden-Edin-Blackhall. Soils found in the western half of the unit include Zeomont-Ryan Park, Rock River-Ryan Park, Havermom, and Aquic Ustifluvents.
The west and east portions of the Sweetwater Arm Unit share four common soil types including Rawlings-Rock River, Rock Outcrop, Ryan Park, and the Typic Fluvaquents found in the Horse Creek area. The soil range includes saline subirrigated, loamy, shallow loamy, shallow sandy, sandy, and very shallow.
The three most common soil types across the Sweetwater Arm Unit are Ryan Park (in the eastern half) and Typic Fluvaquents and Aquic Ustifluvents (in the western half). Ryan Park is a sandy soil, which creates blowing, sandy conditions depicted in the photograph of the eastern half of the Sweetwater Arm Unit in chapter 4 on page 38. The more common soils in the western half of the unit, including Havermom, are subirrigated soils, which provide better growing conditions for vegetation. The sandy soil types (Rawlins-Rock River and Rock River-Ryan Park) in the western half of the unit are less impacted by reservoir operations. One area of Ryan Park in the western half of the unit abuts the reservoir on the south side of the water body.
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Water resources, hydroloGy, aNd Water riGhts
The refuge is situated on portions of the Bureau of Reclamation’s Pathfinder Reservoir. The reservoir’s dam, located on the North Platte River and backing water flowing in from the Sweetwater River, impounds 1,016,000 acre-feet. The reservoir serves
as part of the North Platte Project, explained in chapter 2.
Water on the refuge’s four units—the main Sweetwater Arm Unit and the satellite Goose Bay, Deweese Creek, and Sage Creek units—flows into the North Platte River. Reclamation retains ownership of all appurtenant state-based Chapter 3 — Refuge Resources and Description 19
water rights. All of the state-based water rights appurtenant to the formerly ranched lands withdrawn for the reservoir are North Platte Project water and part of the reservoir pool, which is maintained on behalf of the downstream water users who entered into repayment contracts for the construction of the project. The Service cannot obtain or purchase state-based water rights for this refuge, due to the lack of enabling legislation.
Four perennial streams on the Sweetwater Arm Unit empty into the reservoir: the Sweetwater River, Dry Creek, Arkansas Creek, and Horse Creek. Upstream of the reservoir pool, all of these streams are relatively free-flowing, with only small on-stream irrigation reservoirs. The largest of the four streams is the Sweetwater River, which has a watershed area of 2,338 square miles upstream of a USGS gauge, located 7 miles upstream of the reservoir. The station has been in operation from 1914 to 1924 and from 1939 to the present. A gauging station (USGS 06639500) was operated on Horse Creek near the dam from 1915 to 1924. The drainage area of Horse Creek at the gauging station was 117 square miles.
Stream discharge generally peaks from snowmelt and precipitation runoff in May and is at its lowest levels in September. Former oxbows of the Sweetwater River receive spring flood flows and serve as seasonal marshes. USGS gauging station records indicate the mean annual production is approximately 91,200 acre-feet for the Sweetwater River and approximately 2,400 acre-feet for Horse Creek.
The Sweetwater Arm Unit contains former ranchland that had several irrigation ditches. The Bothwell ditches divert water from the Sweetwater River, and the Smith ditches divert water from Horse Creek. The lands these ditches irrigated were designated to be inundated by Pathfinder Reservoir. However, over the years, the reservoir’s storage obligations have decreased and some of the lands are not underwater. These state-based water rights were adjudicated and have not been abandoned. Table 2 shows the irrigation rights held by Reclamation for the Sweetwater River and Horse Creek.
The Soda Lakes area contains a series of small, seep-fed alkali ponds. The ponds are shallow, and some dry up in the summer. Several of the ponds are connected by ditches; some have dams that allow water to impound to deeper levels. The structures are in poor condition. All of these lands were withdrawn from the public domain for Reclamation purposes.
A portion of the Goose Bay Unit is underwater when reservoir levels are high. In low-water conditions, it is dry. The unit’s water derives either from reservoir storage or from surface moisture from high water tables resulting from reservoir storage. Approximately 320 acres of the unit were reserved for refuge purposes.
The Deweese Creek Unit has small dams and water-spreader ditches, most of which are dilapidated. Some water from the creek is diverted and spread into small impoundments and moist areas that offer protection for waterfowl broods and afford growth of aquatic plants and grass. Because the soil has hardpan clay under it, the diverted water returns to the creek, which has a fairly constant flow. A gauging station (USGS 06637000) was operated on Deweese Creek from 1917 to 1924. The drainage area above the gauging station was 16.4 square miles. The mean annual production during the period of record was 1,960 acre-feet. Approximately 440 acres of the Deweese Creek Unit were reserved for refuge purposes.
Sage Creek and the North Platte River run through the Sage Creek Unit. Sage Creek has a watershed of approximately 190 square miles, which produces flashy, torrential flows filled with silt and sediment. A gauging station (USGS 06636500) was operated on Sage Creek from 1915 to 1925. The mean production during the period of record was 13,800 acre-feet per year.
Photograph caption:
Photograph credit:
AAAAAAAAAA
Air quality receives protection under several provisions of the Clean Air Act, including the national ambient air quality standards (NAAQS) and 20 CCP, Pathfinder National Wildlife Refuge, WY
the prevention of significant deterioration program. NAAQS include maximum allowable pollution levels for particulate matter, ozone, sulfur dioxide, nitrogen dioxide, lead, and carbon dioxide.
Based on the Wyoming’s most current data, the state has relatively clean air. In the area of the refuge (Carbon and Natrona counties), the levels of carbon monoxide, nitrogen dioxide, ozone, sulfur dioxide, particulate matter (diameter <2.5 micrometers), particulate matter (diameter <10 micrometers), and lead did not exceed federal standards at any monitoring site in 2006 (U.S. Environmental Protection Agency [EPA] 2007a).
Table 2. Bureau of Reclamation irrigation rights for the Sweetwater River and horse Creek, Wyoming.Permit Territorial Priority No.RightDateNameUseSourceCFS AcreageA.J. Bothwell 9/1/1886Bothwell-Irrigation Sweetwater 6.77 474 Sweetwater RiverNo. 2 DitchState of 9/1/1886Bothwell-Irrigation Sweetwater 2.99 209 Wyoming et al. Sweetwater RiverNo. 2 DitchA.J. Bothwell 6/1/1888Bothwell-Irrigation Sweetwater 9.55669 Sweetwater and RiverNo. 3 Ditchdomestic 397-EA.J. Bothwell 12/22/1898Bothwell-Stock and Sweetwater 2.79 195 Sweetwater domestic RiverNo. 2 Ditch Enlargement397-EState of 12/22/1898Bothwell-Stock and Sweetwater 1.0171 Wyoming Sweetwater domestic RiverNo. 2 Ditch Enlargement397-EA.J. Bothwell 12/22/1898Bothwell-Stock and Sweetwater .79 55 Sweetwater domestic RiverNo. 2 Ditch Enlargement1384A.J. Bothwell 2/6/1897Supplement Irrigation A spring 8.8of Bothwell and or seep No. 2 Ditchdomestic supplements the Sweetwater River Bothwell-Sweetwater No. 2 Ditch rights in case they are not wholeA.J. Bothwell 6/17/1885Smith No. 1 Irrigation Horse Creek 2.8 190 Ditchand domestic A.J. Bothwell 6/17/1885Smith No. 2 Irrigation Horse Creek 1.1480 Ditch
The air quality index (AQI) is an approximate indicator of overall air quality, because it takes into account all of the criteria air pollutants measured within a geographic area. Air quality in Carbon and Natrona counties is considered to be generally good, with no reported days of unhealthy air quality (EPA 2007b).
Prescribed burning is the refuge management activity that has the greatest effect on air quality (find more information in the description of the fire management program in appendix I). The management of smoke is incorporated into planning prescribed burns and, to the extent possible, Chapter 3 — Refuge Resources and Description 21
in suppression of wildfires. Sensitive areas are identified and precautions are taken to safeguard visitors and local residents. Smoke dispersal is a consideration in determining whether a prescribed burn is within prescription. Generally, the fine-grass fuels and small burn size (80–600 acres) generate low volumes of smoke for short durations (4–5 hours). Prescribed burning activities have not yet occurred at Pathfinder NWR.
BIOLOGICAL RESOURCES
This section describes the existing habitat and wildlife at Pathfinder NWR. Appendixes J–M list species that occur or potentially occur on the refuge for plants (appendix J), birds (appendix K), amphibians and reptiles (appendix L), and mammals (appendix M).
HHHHHHH
Major habitat types of Pathfinder NWR include open water wetlands, uplands consisting of shrub and grasslands, and alkali flats. The location and distribution of the major habitat types for the refuge is shown in figure 6.
OOOOOOOOOOOOOOOOO
Water rights throughout Wyoming are tightly regulated by the Wyoming State Engineer’s Office. Central Wyoming is characterized by dry, arid uplands and unpredictable water runoff events. Due to these conditions, Pathfinder Reservoir was constructed to control flooding and to provide for irrigation water to ranches. Over time, the purposes of Pathfinder Reservoir expanded, and it now is used to provide water for hydropower and to deliver water to other downstream reservoirs.
RRRRRRRRRRRRRRRRRRR
As explained in chapter 2, Pathfinder Reservoir is part of a system of dams and reservoirs operated by the Bureau of Reclamation in the North Platte River Basin for irrigation, hydroelectric power production, and municipal and industrial water supply. As such, the Service has little to no input into reservoir level management, although a significant portion of the refuge lies below the high water line of the reservoir. As a result, the available management options and long-term benefits of management actions are limited, as reservoir fluctuations can inundate, desiccate, or destroy wildlife habitats.
The spillway elevation for the reservoir is approximately 5,850 feet, at which point the storage capacity is 1,016,507 acre-feet. From 1996 to 2005, the reservoir level saw a high of 5,849.89 feet in 1999 and a low of 5,784.84 feet in 2004. Annual variation between high and low reservoir levels during this time period ranged from 8 feet in 2005 to 26 feet in 2001 and 2002, and averaged nearly 17 feet annually (USBR).
The biological consequences of these variable water levels include a lack of reliable emergent or submergent vegetative growth; shorelines that are primarily sandy, varying from bare sand and rock to partially or fully vegetated with annuals; potentially significant weed issues in low-water years (tamarisk is currently scattered around the reservoir below the high water line); and substrates from the bottom of the reservoir being windblown and deposited on downwind uplands. With the low water levels of the past 5 years, the former floodplain of the Sweetwater River has produced some promising meadow habitat, but a relatively small rise in the reservoir elevation would inundate most of this area.
Photograph caption:
Photograph credit: 22 CCP, Pathfinder National Wildlife Refuge, WY
Figure title: HFigure title: Chapter 3 — Refuge Resources and Description 23
Use of the reservoir by waterbirds is minimal, likely due to poor water conditions resulting in poor food production, along with disturbance on the water and shorelines from boating, fishing, camping, and all-terrain vehicle (ATV) use.
Fluctuations in reservoir water levels create cutbank and sandy shorelines, resulting in the establishment of little emergent vegetation (i.e., cattails and rushes) for brood cover and feeding areas. The Service’s inability to control reservoir water levels to manage for habitat conditions to support migratory bird species, along with a decrease in migratory bird use of the reservoir, hinder the effectiveness of managing the reservoir area as a national wildlife refuge.
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The refuge’s 1961 annual narrative (BSFW) makes reference to “pit type” ponds that were apparently in place on the Goose Bay Unit. Remnants of these ponds still exist, but only two to three appear to be functional in good water years. The 1962 annual narrative (BSFW) also notes that three dikes and ditches were constructed on Deweese Creek that year, along with one on Sage Creek. The dikes on Deweese Creek were designed to back up water that would not only create a small impoundment but also supply water for use in irrigating adjacent uplands for waterfowl nesting habitat. It appears the dikes were somewhat successful, as this area holds remnants of tame grasses that were probably planted at or near the same time. All of the dikes are currently breached, with the creek running back on its old course through them. The remnants of these ponds hold the only emergents found on the refuge.
The Sage Creek dike was reported to be 270 feet in length and included a 1,300-foot ditch for irrigation (present-day refuge staff have not seen the Sage Creek dike and ditch). Some of the area was planted to a wheatgrass mixture. The dike and ditch were apparently subject to regular damage by high waters during spring flows and thunderstorms, as damage to these structures were reported in 1962, 1963, and 1964. In 1964–65, five dams were constructed on Horse Creek; they appear to be nonfunctional today and to have had little impact on habitat development.
Playas
The playa lakes that make up the Steamboat Lake area of the Sweetwater Arm Unit are influenced by runoff and appear to be supplemented by springs around Steamboat Lake. This area blends in with the upland and alkali flat habitat types, as it consists of small rolling “hills” not more than 10–15 feet higher than the surrounding area with alkali areas between them. These hills and alkali areas vary in size from 100 square feet to many acres. After significant precipitation events, and/or runoff, these alkali areas hold water for a time. Typically, the smaller alkaline areas provide spring habitat but are mainly dry later in the summer months, and the larger alkaline areas to the east of the chain of lakes hold some water most of the year. Steamboat Lake and the next lake east hold water year-round in most years, but an alkali flat generally forms around them in late summer and early fall.
The 1961 annual narrative (BSFW) noted that 1,650 linear feet of diking was constructed in the Soda Lakes area to hold early water and decrease evaporation. This construction can be seen today. Emergent vegetation is limited to the edges of the ponds and includes rushes and sedges. Steamboat Lake and Soda Lakes are used by American avocet, Wilson’s phalarope, and other shorebirds for migration and breeding, as well as several duck species, Canada geese, coot, and eared grebe. The smaller, drier lakes see some use by avocet, apparently when the water is fresher, but they are minimally used otherwise.
The 1966 annual narrative (BSFW) documents the Service’s unsuccessful attempts to acquire water rights for Pathfinder NWR development.
UUUUUUUUUUUUUUUUUUUUUUUUUUUUUUUUU
Uplands consisting of shrub and grasslands are the dominant habitat type in the area. The upland areas adjacent to the reservoir in the area impacted by reservoir operations are characterized by blowing sand and dryland shrub communities. Areas farther west on the Sweetwater Arm Unit (approximately west of Horse Creek) are characterized by more gentle terrain and grassy and wet meadow areas rather than sandy cutbanks. Located in the backwaters of the reservoir, these areas are wet only if the reservoir is full or near full.
The majority of the lands above the high water line of Pathfinder Reservoir—and likely, the area below and approaching the dam—consists of shrub-dominated uplands and rock outcrops. The upland habitats on the refuge slope upward from the reservoir where the North Platte and Sweetwater River channels lie, and in some places are 150 feet above the high water line. Rock outcrops occur on the north, northwest, southwest, and southeast portions of the Sweetwater Arm Unit and in the southeast corner of the Sage Creek Unit. In addition, the western part of the Sage Creek Unit adjacent to the North Platte River contains shear cliffs that rise up from the river 150 feet to an upland bench above. A notable feature on the refuge landscape, these cliffs appear to be made of a different rock than the other Precambrian rock outcrops. These outcrops, though dominated by rock, contain within them areas of sparse grass, forbs, and sage mixes characteristic of the surrounding uplands, as well as scattered limber pine and Rocky Mountain juniper.
The upland vegetation is primarily dominated by sagebrush of various species and heights, and 24 CCP, Pathfinder National Wildlife Refuge, WY
probably age classes as well. The understory of grasses and forbs is sparse in general, but varies from site to site based on soil and range type. The south side of the Sweetwater Arm Unit and the upland areas of the Deweese Creek and Goose Bay units consist primarily of well-dispersed sagebrush of 15–40 percent canopy cover, with a minimal grass-and-forb understory and considerable bare ground. Some draws on the western portion of the Goose Bay Unit and the southern part of the Sweetwater Arm Unit contain small areas of sage 2–4 feet tall and have a canopy cover of nearly 100 percent. Some uplands areas on the north side of the Sweetwater Arm Unit and east of Horse Creek are almost completely covered with pricklypear. The sage component is still present, but the shrubs are further apart and the understory is dominated by cactus.
An area in the northeast corner of the Sweetwater Arm Unit is apparently impacted by sediments blowing from the reservoir bottom when it is exposed. This area was once typical of the other sage-dominated uplands, but most of the plants have died, apparently as the result of being sandblasted or choked off in the sediments, as the soil deposits are several inches deep in spots and have formed drifts. The uplands adjacent to the Steamboat Lake area and the upper end of the Sweetwater River contain more greasewood than sage, and unless they are on a bench, contain very little undergrowth and appear to have very poor soils for vegetative growth. Historic use of the uplands has been for livestock grazing. The geography and soil types in this area are such that, for the most part, no thought seems to have been given to attempting irrigation. Wildlife use of these areas includes pronghorn, mule deer, sage thrasher, horned lark, meadow lark, sage-grouse, rattlesnake, and white-tailed prairie dog.
Wyoming has more sagebrush than any other state. Two cover types, Wyoming big sagebrush (30.8 percent) and mixed grass (20.2 percent), occupied about half of the land area of the Wyoming Gap Analysis (WY-GAP) land cover map, based on the proportional area of land cover (Merrill et al. 1996). WY-GAP is part of the national Gap Analysis Program (GAP), whose goal is to keep common species common by identifying species and plant communities that are inadequately represented in existing conservation lands. Begun in 1991, WY-GAP was officially completed in November 1996. The main goal of WY-GAP was to analyze the current status of biodiversity within Wyoming, focusing on two biodiversity elements: land cover types and terrestrial vertebrate species. Land ownership and management for the state of Wyoming was combined with the data on land cover and species distributions in a geographic overlay using Geographic Information System (GIS) data to determine which biodiversity elements are inadequately protected within the current system of areas managed for conservation.
Wyoming sagebrush communities are as diverse as the landscape, which is covered by 13 different types of sagebrush. Sagebrush-associated vegetation types provide habitat for approximately 87 species of mammals; 297 species of birds; and 63 species of fish, reptiles, and amphibians (Wyoming Interagency Vegetation Committee 2002). These species have been influenced by historic fire intervals and both domestic and wild ungulate grazing.
Associated species occurring in saltbush and desert shrub cover type include greasewood, winterfat, galleta grass, alkali sacaton, Indian ricegrass, bottlebrush, squirreltail, foxtail barley, basin wildrye, and western wheatgrass.
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GraziNG maNaGemeNt history
As noted in chapter 2, in 1965, the Service signed an MOA (contract #14-06-700-4737) with the BLM that transferred grazing management at Pathfinder NWR to the BLM. Since that time, the BLM has administered the grazing in conjunction with BLM allotment grazing. Section 202 of the Federal Land Policy and Management Act of 1976 (FLPMA) requires the development and maintenance of land use plans for public lands. BLM land use plans are designed to provide guidance for future management actions and the development of subsequent, more detailed and limited-scope plans for resources and uses. Land use plans are developed under the multiple-use and sustained-yield mandate of FLPMA.
Land use plans identify lands that are available for livestock grazing and the parameters under which grazing is to occur. BLM issues grazing permits or leases for available grazing lands. Grazing permits and leases specify the portion of the landscape BLM Chapter 3 — Refuge Resources and Description 25
authorizes to the permittee or lessee for grazing (i.e., one or more allotments) and establish the terms and conditions of grazing use. Terms and conditions include, at a minimum, the number and class of livestock, when and where they are allowed to graze, and for how long. Grazing use must conform to any applicable allotment management plans, the terms and conditions of the permit or lease, land use plan decisions, the grazing regulations, and other applicable laws.
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Alkali flats are predominately flat lands and seasonally dried-up wetland basins with strongly saline soils. These areas are associated with or adjacent to playas or intermittent lakes. The alkaline/saline soils appear to severely restrict plant growth, as vegetation is very spotty throughout much of this area. Vegetation includes saltgrass, alkali sacaton, and greasewood. Wildlife use by killdeer and American avocet (likely in association with water nearby) is similarly sparse. The Steamboat Lake area supports alkali wetlands and associated vegetation and wildlife uses.
The soil characteristic of this area is Aquic Ustifluvents (saline), 0–3 percent slopes, and includes the playas mentioned in the open water wetlands section above. When there is no water in the basins of the playas, the soils have an alkaline cover. The alkali flats also include the “hilly” areas of the playas, which occur mainly in the northeast portion of the unit and between the larger playas. The dominant vegetation includes greasewood and saltgrass on the hilly areas, and sedges, rushes, slender spiderflower (a state species of concern), and other salt-tolerant species on the edges of some of the playas. The bottoms of the playa basins do not appear to support vegetation.
M
eadoWs
The refuge does not contain irrigated meadows. Meadow areas exist in a limited capacity and vary with the reservoir level, as much of the meadowland is underwater in high water conditions.
On the Deweese Creek Unit, the Service constructed a series of dikes and ditches in 1962 on the creek with the hope of irrigating the land to improve waterfowl-nesting habitat and create brood-rearing habitat with the ponds. The dikes blocked the creek and were constructed to continue into the adjoining upland area to serve as a ditch bank carrying water to irrigate these lands. When the Service realized, in 1966, that no water rights were available to support such projects, all construction and maintenance efforts were abandoned. Available historical documents do not indicate that these irrigated meadows were seeded, but the remnant stand of tame grasses, as well as documentation of planting efforts in the 1960s on the Sage Creek Unit, indicate seeding could have been attempted on the Deweese Creek Unit as well. The meadow area on this unit is estimated to be less than 100 acres.
The Goose Bay Unit holds some meadow habitat that fluctuates based on water conditions. It is likely nonexistent at full reservoir pool, but may return when the pool is low. The meadows slope down the bay to the east toward the reservoir and are likely influenced by surface and subsurface water flows, presumably spring fed. In extremely low water years (such as 2006), the meadow at Goose Bay is estimated at 100–150 acres. In high water years, the area is likely less than 20 acres.
Another low reservoir phenomenon is the emergence of meadow habitat, which usually occurs after a few successive dry years, along the old floodplain of the Sweetwater River in the Sweetwater Arm Unit. This floodplain is some of the flattest terrain on the refuge when not inundated by the reservoir, and this aspect, combined with water flowing from the Sweetwater River and also likely influenced by Horse Creek, probably raises the water table enough to create fairly lush meadows and emergents over time. The growth of this area was apparent in 2006 and was also noted in the 1966 annual narrative (BSFW). No vegetative surveys have been completed of these areas, but sedges, rushes, and unidentified taller grass species have been observed. Although the aforementioned narrative noted the lush vegetative growth in the meadows of the Sweetwater Arm Unit, it also noted that use of the area by waterfowl, especially nesting birds, appeared to be light.
With the dikes blown out at the Deweese Creek Unit, the pit ponds at the Goose Bay Unit functioning minimally, and no ponds along the Sweetwater River, the brooding areas may be limiting what waterfowl nesting occurs. Pronghorn heavily use the Sweetwater Arm Unit meadows. Snipe, Wilson’s phalarope, meadowlark, and willet have been noted.
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A contaminant assessment completed by the ecological services division of the Service (Ramirez, Dickerson, and Jennings 1995) did not find any major trace element problems at the Sweetwater Arm Unit, with the possible exception of arsenic and chromium in brine shrimp. Although elevated, arsenic and chromium concentrations do not pose a threat to aquatic birds. Major cations and anions (positively and negatively charged ions, respectively), specific conductance, and total alkalinity are typical of shallow alkaline wetlands in the semiarid western United States.
The assessment did not find any evidence of sodium toxicity in ducklings or goslings; however, 26 CCP, Pathfinder National Wildlife Refuge, WY
management recommendations state that waterfowl nesting should not be encouraged at these ponds due to the potential for sodium toxicity. Nesting enhancement measures could be carried out at the southeast ponds closest to the Sweetwater Arm Unit of the reservoir where freshwater is available. Refuge managers should consider water-quality analysis at these ponds before intensive management for waterfowl production. The alkaline ponds provide good nesting habitat for American avocet. If possible, aquatic bird surveys should be conduced during the breeding season to determine productivity and use (Ramirez, Dickerson, and Jennings 1995).
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Federally listed threatened and endangered species for Carbon County include black-footed ferret and blowout beardtongue. Although Canada lynx and yellow-billed cuckoo are potentially found in the county, the refuge does not contain habitat for either species. Currently, no known federally listed threatened or endangered species occur in Natrona County or at the refuge (Wyoming Natural Diversity Database [WYNDD] 2006).
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Table 3 indicates documented occurrences of vertebrate species of concern within Pathfinder NWR (WYNDD 2006). Observations were in the Steamboat Lake area of the Sweetwater Arm Unit.
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Table 3. Documented occurrences of vertebrate species of concern within Pathfinder NWR, Wyoming.
Bird SpeciesMost Recent Observation
American white pelican
2003
Black-crowned night-heron
2002
Brewer’s sparrow
2007
Franklin’s gull
2007
Great blue heron
2007
Greater sandhill crane
2006
Lark bunting
2007
Lesser scaup
2006
McCown’s longspur
2006
Mountain plover
2006
Northern pintail
2007
Redhead
2005
Sage thrasher
2007
Western grebe
2005
White-faced ibis
2005Chapter 3 — Refuge Resources and Description 27
CULTURAL RESOURCES
The Service is responsible for managing archaeological and historical sites found on refuge lands.
Existing agreements have shifted management responsibilities for some refuge programs to other agencies, and coordination between the managing agencies is important to prevent negative effects to cultural resources. The grazing program is currently managed by the BLM, while reservoir water levels are managed by Reclamation. These programs may have effects on cultural resources.
The likelihood of archaeological sites near the reservoir shoreline is high. Reservoir water levels fluctuate an average of 20 feet per year, and shoreline erosion may expose archaeological materials. During low water periods, the collecting of artifacts likely occurs without the Service’s knowledge.
Prehistoric backGrouNd
Although structured searches have been minimal in number, archaeological surveys on and near refuge lands have found numerous indications of substantial use of the area by prehistoric cultures. Ten prehistoric sites have been recorded on the refuge and 142 near refuge lands. They consist of chipped stone, hearths, stone circles, stone raw material procurement areas, rock shelters, and lithic scatters. The presence of the North Platte and Sweetwater rivers in this semiarid land were likely influential on prehistoric human use (Larson and Letts 2003). Arapaho, Cheyenne, Sioux, and Shoshone tribes were probably the most common users of the area.
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Although trappers and traders traversed and used the area in the early nineteenth century, by far the largest push of humans through the region came as a result of the Oregon Trail. The remnants of the trail can clearly be seen in numerous locations on the Steamboat Lake area of the refuge, as well as numerous off-refuge locations nearby. Over 200,000 people are estimated to have traveled the Oregon Trail between 1840 and 1870, many leaving a record of their passing at Independence Rock just 3 miles west of the refuge (Larson and Letts 2003). In addition to travelers to the west coast, the Oregon Trial was used briefly by the Pony Express in the 1860s, and the discovery of gold in 1868 near South Pass City, Wyoming, brought opportunistic travelers.
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European settlement of the refuge area was hindered by a combination of limited natural resources, the absence of major travel corridors (with the exception of the defunct Oregon Trail) and railways, and harsh environmental conditions. Indeed, even today very few people live in the vicinity of the refuge and reservoir. Settlement was almost exclusively dependent upon ranching. Some sheepherding occurred, but cattle ranching was preferred. Because the area is very dry, expanses of land were required to take advantage of what grass was available; ranches were large and included what is now BLM ground for grazing. As in much of the West, water was a critical commodity. At the base of the large rock outcrop on the north side of the Sweetwater Arm Unit is the gravesite of Ella Watson, better known as “Cattle Kate,” and James Averal. They were reported to have been hung in 1889 just off the southwest portion of the Sweetwater Arm Unit over a water dispute.
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One of the biggest signs of development in the region is the reservoir created by Pathfinder Dam. The dam was constructed between 1905 an 1909, and later modified, on a stretch of the North Platte River. Numerous pipelines for oil and natural gas traverse the area, but successful mineral exploration has been minimal. The nearest communities to the refuge are Alcova, located to the east, which currently caters to recreationists on Alcova and Pathfinder reservoirs, and Jeffrey City, a classic mining boom-and-bust town approximately 40 miles west of the refuge.
SPECIAL MANAGEMENT AREAS
There are no special management areas related to the refuge.
WilderNess
Due to human development in the area and current and past land use patterns, the refuge does not appear to meet the criteria for wilderness. As outlined in the Wilderness Act of 1994, a wilderness area:
generally appears to have been affected RRprimarily by the forces of nature, with the human imprint substantially unnoticeable;
offers outstanding opportunities for solitude or RRa primitive and unconfined type of recreation;
has at least 5,000 acres of land or is of sufficient RRsize as to make practicable its preservation and use in an unimpaired condition;
may contain ecological, geological, or other RRfeatures of scientific, educational, scenic, or historical value.
Visitor
Refuge infrastructure (roads) and public use facilities (wildlife viewing area, county park) are shown in figure 7.28 CCP, Pathfinder National Wildlife Refuge, WY
The distance of the refuge from the complex headquarters at Arapaho NWR, combined with little boundary fencing and the fact that part of the reservoir is refuge land and part is not, create a situation that allows for unrestricted public use on the refuge.
A developed campground and boat ramp are located at Bishops Point in the Sweetwater Arm Unit and is administered by the Natrona County Roads, Bridges, and Parks Department. Hunting of ducks, coots, mergansers, deer, and pronghorn is permitted throughout the refuge in accordance with state seasons.
An interpretive overlook located along Highway 220 above Steamboat Lake interprets the refuge and likely receives several visits a day from the spring through the fall. Opportunities specific to wildlife observation and photography are minimal, as there are no formal tour routes, hiking trails, or signs.
Several non-wildlife-dependent uses presently occur or are assumed to occur on the refuge, including off-road vehicle use (as the reservoir level fluctuates vehicles follow the shoreline); dispersed camping; water skiing, jet skiing, and pleasure boating; ATV use; Bishops Point campground and boat ramp use; rock climbing; and arrowhead hunting. Although refuge staff have known about these incompatible refuge uses for years, the lack of human and fiscal resources has made addressing them a low priority.
Refuge staff believe that most public use occurs on the refuge’s largest unit, the Sweetwater Arm, due to its size and location close to a main highway and the city of Casper. The Sage Creek Unit is fairly small and remote. Goose Bay and Deweese Creek are small, extremely remote units surrounded by BLM lands that probably only see occasional use by hunt­ers and jet skiers or boaters in high water conditions.Photograph caption: Photograph caption: Photograph credit:
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Hunting is allowed per state seasons. Because the refuge boundary is not appropriately posted or fenced, Service law enforcement officers cannot enforce hunting regulations. The number of hunters using the refuge is unknown but is predicted to be low due to the remote access to most of the refuge.
Fishing
Fishing will continue to be allowed on the main reservoir and in stream areas leading to it. Fishing is allowed per state seasons. The Service does not have control over fishing limits or seasonal closures.
Wildlife Observation, Photography, Environmental Education, and Interpretation
Although wildlife viewing and photography probably occur on other areas of the refuge, the only known uses occur at the Steamboat Lake area, which offers the best opportunities for these activities. An interpretive overlook can be found off Highway 220 above Steamboat Lake.
PARTNERShIPS
Refuge staff work with Audubon Wyoming to conduct annual breeding bird surveys. Audubon Wyoming conducts annual waterfowl and shorebird surveys at the Steamboat Lake area.
SOCIOECONOMIC ENvIRONMENT
The local and regional demographics (statistical data about the population) are described below for the communities in the five-county study area pertaining to Pathfinder NWR.
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The following section illustrates the current socioeconomic conditions found within the study area, which is comprised of Albany, Carbon, Converse, Fremont, and Natrona counties. Pathfinder NWR is located within Carbon and Natrona counties; however, the remaining three counties included in the study area are located in Chapter 3 — Refuge Resources and Description 29
Figure title: 30 CCP, Pathfinder National Wildlife Refuge, WY
close proximity to the refuge and could be affected by refuge management decisions.
Figure 8 shows the location of Pathfinder NWR in relation to nearby population centers. The refuge is located in central Wyoming near the cities of Casper, Rawlins, and Medicine Bow.
Figure title and source: Figure title and source:
PoPulatioN
The 2006 census shows the population of the study area has slowly increased since 2000, and total population was about 165,300 as of 2005 (U.S. Census Bureau 2006). Over the same period, the population of Wyoming decreased slightly (figure 9). The study
area contained 33 percent of Wyoming’s population in 2005. The city of Casper (2000 census population 49,644) is located within the study area and provides an ample tourist base for the refuge (U.S. Census Bureau 2006).
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